Leaving a Lasting LegacyPermits as a Conservation Tool

U.S. Fish & Wildlife Service

The mission ofthe permitprograms is topromote long-termconservation ofanimals,plants, andtheir habitats,and encouragejointstewardshipwith others.

Front Cover:White-faced ibisUSFWS

Inside Cover:Polar bear on ice© Corel Corporation

Introduction

During the past one hundred years, theUnited States has enacted wildlife laws andratified international treaties to protect ourheritage of wild animals, plants, and theirhabitats. Most of these laws use permits asa tool to assist in the conservation ofprotected resources.

Human demands on animals and plants canleave them vulnerable. Permits provide ameans to balance use and conservation bytracking and regulating human activitiesthat affect wildlife.

The history of the United States is full ofstories that illustrate the effects ofoveruse. By the early 20th century, bisonherds had all but disappeared as railroadspushed west. On the east coast, women’sfashion dictated the need for largenumbers of bird feathers, a trend thatmight have led to the obliteration of egretsand other birds.

Conversely, many species becamesustainably maintained through varyingregulatory programs. Birds once huntedfor their beautiful feathers foundprotection with passage and international

endorsement of the Migratory Bird TreatyAct. The recovery of the Americanalligator and many furbearing species,such as bobcat and river otter, areexcellent examples of the success of aninternational permitting program.

Times change, and the demands placed onwildlife also change. From time to time,Service permit programs review theiractivities to determine how well they servethe public. During the past several years,the programs have once again initiatedsuch a review process, with the help ofscientific and conservation organizations,which have requested better approaches toprogrammatic permitting. In late 1998, theService asked the public to comment on theneed for a policy using permits as aconservation tool and to offer suggestionsfor improving the permitting process.These valuable comments served as aspringboard for the development of a visiondocument and action plan. Recognizingthat administration of permit programsmust remain flexible, the Service’s vision isto use permits to foster partnerships andenhance our ability to protect and conservewildlife.

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“The nationbehaves well ifit treats thenaturalresources asassets which itmust turn overto the nextgenerationincreased andnot impaired invalue.”

Theodore Roosevelt

Conservation Laws

The Nation’s wildlife laws embody acollective commitment to conserve wildlife.They maintain biodiversity of animals andplants for enjoyment of people today andall future generations. Each law has itsown unique purpose and uses permits inspecific ways to protect species.

Bald and Golden Eagle Protection Act(1940) protects eagles from commercialexploitation and safeguards their continuedsurvival in the United States. Permits areissued for scientific, educational, andreligious purposes, depredation, andfalconry (golden eagles).

Convention on International Trade inEndangered Species of Wild Fauna andFlora (CITES) (1975) monitors and regulatesglobal trade in many species of animals andplants through a system of import andexport permits to ensure that commercialdemand does not threaten their survival inthe wild.

Endangered Species Act (1973) protectsendangered and threatened animals andplants and their habitats. Permits areissued for scientific research andenhancement activities, incidental take, andconservation activities on private lands.Permits are also issued for zoological,horticultural, or botanical exhibitionpurposes for threatened species. Import/export licenses and designated portexception permits are issued forinternational shipments of all wildlife.

Lacey Act (1900) prohibits accidental orintentional introduction to the UnitedStates of exotic injurious or potentiallyinjurious wildlife, and provides for thehumane transport of wildlife. Permits forinjurious wildlife are issued for import,transport, and acquisition for zoological,educational, medical, or scientific purposes.

Marine Mammal Protection Act (1972)protects marine mammal populations andtheir ecosystems. Permits are issued forscientific research, public display,enhancing the survival or recovery of aspecies or stock, educational or commercialphotography, and import of personal sport-hunted trophies of polar bears taken inCanada.

Migratory Bird Treaty Act (1918) conservesmigratory birds. Permits are issued forscientific collecting, banding and marking,falconry, raptor propagation, depredation,import, export, taxidermy, waterfowl saleand disposal, and special purposes.

Wild Bird Conservation Act (1992) ensuresthat populations of exotic birds are notharmed by trade to the United States andencourages wild bird conservationprograms in countries of origin. Permitsare issued for scientific research, zoologicalbreeding or display, cooperative breeding,and personal pet purposes.

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Lange’s metalmark butterflyJerry Powell

Our vision is touse permits tofosterpartnershipsand enhanceour ability toprotect andconservewildlife.

Permit Programs

The following programs work together toconserve wildlife in accordance with laws,while streamlining the permitting processto help the public.

The Endangered Species program helpsprotect and recover our country’sthreatened or endangered species and theirecosystems by listing, reclassifying anddelisting native species; consulting withFederal agencies on activities that mayaffect listed species; planning andimplementing recovery activities; issuingpermits to allow take and interstatecommerce for recovery purposes,incidental take, and conservation activitieson private lands; and funding Stateendangered species conservation efforts.

The International Affairs program(Division of Management Authority andDivision of Scientific Authority) providesleadership for the United States to helpensure that any international trade inprotected wildlife is sustainable. TheManagement Authority processes permitsunder CITES, Lacey Act (injuriouswildlife), Marine Mammal Protection Act,and Wild Bird Conservation Act. TheDivision also processes certain permitsunder the Bald and Golden EagleProtection Act (cross-border transport),Migratory Bird Treaty Act (import andexport only), and U.S. Endangered SpeciesAct (import and export of native and

non-native species, and interstate andforeign commerce of non-native species).The Scientific Authority provides scientificreview of certain permit applications; lists,reclassifies, and delists foreign threatenedand endangered species; and works withother countries to protect and recoverprotected wildlife.

The Division of Law Enforcementcontributes to every aspect of wildlifeconservation by targeting potentiallydevastating threats, such as illegal tradeand commercialization, habitat destruction,and environmental contaminants. LawEnforcement investigates and solveswildlife crimes, inspects wildlife shipments,and helps Americans obey wildlife laws.The Division issues import and exportlicenses, non-designated port permits, andcertain CITES permits.

The Division of Migratory BirdManagement leads the Service effort toprotect and enhance bird populationsthroughout the Western Hemisphere. TheDivision collects and analyzes informationabout migratory birds and their habitats sothat wildlife managers can work effectivelyto conserve them and so that Americanscan continue to enjoy them throughhunting, birdwatching, and other activities.The Division issues permits under the Baldand Golden Eagle Protection Act andMigratory Bird Treaty Act.

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“A thing is rightwhen it tends topreserve theintegrity,stability andbeauty of thebioticcommunity. Itis wrong whenit tendsotherwise.”Aldo Leopold

Conserving Wildlife, Plants, andtheir Habitats

Left:Spectacled eider© Hollingsworth

Permits help conserve wildlife, plants, andtheir habitats, although most people areunaware of the role. Permits can tell ussomething useful about the resources theyregulate. In general, wildlife conservationlaws and treaties prohibit certain activitieswith protected species, such as take fromthe wild. Exceptions are usually allowedfor limited purposes. To make theseexceptions, the Service issues permits thatallow us to monitor activities to determinehow they affect protected wildlifepopulations. Data on these species can beaccumulated to support sustainablemanagement of wildlife.

Permits enable scientists to conductresearch on protected species to developinformation needed to assist with theirconservation. For example, little wasknown about where spectacled eiders spentmuch of the year until scientists obtainedpermits that allowed them to implanttransmitters on this threatened species.Using radio satellite telemetry,researchers discovered large flocks ofeiders in remote openings in the Bering Sea

ice packs during winter months. Learningwhere spectacled eiders spend the winterenabled researchers to develop specificresearch projects to identify biological orenvironmental factors hindering therecovery of this species.

The Service uses a computer database(Service Permit Issuance and TrackingSystem) to look at the total number ofanimals and plants taken from apopulation, and monitor permit activitiesaffecting wildlife and plants. Analyzing thepermit information allows us to detectbiological concerns. Review of informationin the database can reveal if too manypermitted animals are being taken tosustain the population. Alternatively, alarge number of permits requested for aparticular species could signal anoverabundance of a species or increasedimpacts to a species. For example, anoverbundance of a migratory bird speciesmay lead us to increase the number ofpermits issued to manage that species toalleviate property damage.

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“Man does notweave the webof life; he ismerely astrand in it.”Chief Seattle

Conserving Wildlife, Plants, andtheir Habitats

Above:Eastern box turtle© Corel Corporation

Our Vision:We will develop permit programs thatencourage broad participation in thestewardship of the Earth’s naturalresources.

We will consider the risks and benefits ofproposed activities to species, and use thebest available science and expertise tomake our decisions.

We will use permits to authorize andmonitor activities consistent with theconservation, protection, and enhancementof wildlife, plants, and their habitats.

We will use and share the unique andvaluable information collected through ourpermit programs to assist the Service andits partners in conserving, managing, andprotecting species and their habitats.

Our Action:Focus permit programs on riskmanagement and conservation:

Objective 1: Identify at-risk species andactivities to assist in conservation efforts

Objective 2: Focus resources based onrisk assessment

Service Permit Issuance and TrackingSystem (SPITS):We will use the database, SPITS, to assistus in focusing permits on riskmanagement. SPITS is used to:

issue and track permit actions andspecies data;

promote timely permit issuance;

share species and management data;

increase coordination across programs,reduce paperwork, and improveconsistency; and

conduct searches and generate reports.

Opposite:Service staff measuring musselsHollingsworth/USFWS6

“Treat people . . .as partners;treat them withdignity; treatthem withrespect.”Thomas Petersand RobertWaterman, Jr.

Serving and Working with People

Laws and regulations help ensure that wildplants and animals have a future in theirnatural environment. However, it is thecommitment of individuals working inpartnership with each other that bringsabout on-the-ground results. We arecommitted to developing partnerships thatrecognize the important role everyoneplays in conserving our precious resources.The opportunities to benefit wild plantsand animals are as numerous as thepartners who work with us.

Permit staff work closely with their stategovernment counterparts, who are integralto the successful conservation of ourNation’s wildlife. They cooperate on certainpermitting activities, such as falconry, andconsult on requirements for regulatedactivities and management of protectedwildlife.

Activities conducted under anenhancement of survival permit associatedwith a “Safe Harbor” agreement benefitboth the species and the private landowner.John Elick is one of eight Texas ranchersworking to restore more than 17,800 acresas part of the Coastal Prairie ConservationInitiative. The initiative is jointly sponsoredby the Attwater Prairie Chicken NationalWildlife Refuge, the Sam HoustonResource Conservation and DevelopmentBoard, and local Soil and WaterConservation Districts. It allowslandowners to receive cost-share incentivesfor voluntary prairie habitat conservationpractices such as brush control,modifications in grazing management, andprescribed burning. The permit relieveslandowners of future regulatoryrestrictions in return for voluntary actionsthat contribute to species conservation.

“Basically,” said Elick, “I learned that theSafe Harbor was designed to protect theranch owner’s property rights on his land,and yet provide the government special useranch land for endangered species habitatwithout the price tag of acquiring the land.Both the government and privatelandowners benefit without any negativedrawbacks.”

The Service also works with partnersabroad to help conserve some of theworld’s most vulnerable wildlife resources.Sometimes those efforts can be as simpleas sending wildlife back where it belongs,as shown by the recent saga of a littleCITES-protected chameleon. Illegallyimported into the United States throughO’Hare Airport in Chicago, Illinois, “Louie”made his way back to Israel, thanks todedicated CITES officials and the quickissuance of a permit. Louie was released byIsraeli Nature Reserve officials near wherehe was originally taken to assist in theconservation of this species in the wild.Without the permit and coordination withthe CITES Management Authority ofIsrael, the chameleon never would havereturned home.

Communication is key to successfulpartnerships. We strive to increase thesatisfaction of our partners by providingfriendly, efficient service and recognizingthe contributions they make in theconservation and management of protectedspecies. A lasting legacy of wild animalsand plants for future generations is onlypossible through the mutual stewardshipthat results when partners work together.

San Joaquin kit foxB. “Moose” Peterson/USFWS 9

“To work for thecommon good isthe greatestcreed.”Albert Schweitzer

Our Vision:We will encourage partnerships to promotejoint stewardship of wildlife, plants, andtheir habitats.

We will listen and respond to the public,our partners, and others.

We will expand our use of technology toimprove customer service and access toinformation.

We will provide the public with timelydecisions in a clear and consistent manner.

Our Action:Implement the permitting process fairlyand consistently

Objective 3: Provide permit staff the toolsneeded to process permit applicationsconsistently

Objective 4: Provide clear policies andregulations

Treat conservationists as partners

Objective 5: Recognize permittees aspartners in conservation

Objective 6: Recognize the value ofresearch and utilize the expertise ofpartners

Serving and Working with People

Above:SturgeonUSFWS

Left:Fairy slippersPeter Carboni/USFWS

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“. . .the effort. . .to streamlinethe permitprocessassociated withThe PeregrineFund’sinternationalefforts toconserve theendangeredHarpy Eaglehas resulted ina tremendousimprovementin our ability toconserve thespecies. . .”The Peregrine Fund

Commitment to Excellence

In 1998, the public told the Service theywanted a more efficient, customer friendlypermitting process. Making theseimprovements is a primary focal point forthe permit programs.

For years, The Peregrine Fund submitteda new permit application each time theywanted to import or export a harpy eagle.Improving communication between theService and the Fund resulted in a betterunderstanding by the Service of the projectand a better understanding by the Fund ofthe permitting process. Working with theFund, the Service approved a new project-based permit, which allowsmultiple imports of birds for rehabilitation,captive breeding, and scientific research.The Fund’s ability to conserve theendangered harpy eagle was enhancedconsiderably.

Left:Harpy eagle with sloth© Alberto Palleroni

Responsiveness to the Fund’s concerns isonly one example of the Service’scontinuing commitment to make thepermitting process a vehicle that promotesconservation while meeting the needs ofour customers and helping the publicunderstand the process. We are working tocreate consistent Service-wide permitprograms, provide clear policy direction,and use new technology to streamline theprocess.

To realize this vision, the permit programsneed dedicated leaders and committedstaff to resolve complicated issues in waysthat benefit wildlife and people. Visionsbecome realities when they are endowedwith sufficient resources. To achieve ourfar-reaching goals, an action plan and thepeople and funds to carry it out are allcritical.

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“Communicationis the mostimportant skillin life.”Stephen R. Covey

Commitment to Excellence

Lemur© Maggie Tieger

Our VisionWe will recognize the importance ofcustomer service and are committed toproviding clear, consistent, and helpfulinformation.

We will coordinate across permit programsand develop clear policy.

We will base permit decisions on soundscience and relevant laws.

We will process permits fairly andconsistently in a timely manner.

We will use communications and datatechnology to streamline the permittingprocessing.

We will seek to attract the best qualifiedindividuals to lead and support the permitprograms.

We will allocate sufficient resources toachieve our vision.

Our Action:Make the permitting process efficient andcustomer friendly

Objective 7: Process applications withinspecific time frames

Objective 8: Use current technology tostreamline the permitting process

Objective 9: Simplify the permittingprocess

Objective10: Provide assistance on how toapply for a permit

Objective 11: Consolidate permits

Objective 12: Coordinate permitrequirements at different levels ofgovernment

Objective 13: Simplify port clearance

Provide permit programs with sufficientsupportObjective 14: Increase staff to meetcritical needs

Objective 15: Educate internal andexternal audiences on the value, issues,and needs of permit offices

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APPENDIXPermits Action Plan

“Futuregenerations willknow that witha relativelysmall amountof effort wecould havesaved virtuallyall of the biota.”Edward O. Wilson

Action: Focus permit programs on riskmanagement and conservationObjective 1: Identify at-risk species andactivities to assist in conservation efforts

Identify species and activities by level ofrisk and develop consistent policy,guidelines, and procedures forprocessing permit applications based onrisk

Develop SPITS tracking and reportingcapability to facilitate the analysis ofcumulative take of wildlife and plants forspecies management

Objective 2: Focus resources based on riskassessment

Focus resources based on risk analysisand monitor effectiveness of theprograms to ensure species conservation

Consider including general terms andconditions that, based upon levels of risk,provide for appropriate flexibility andallow for specific unforeseencircumstances

Explore ways to streamline applicationreview procedures for low-risk species

Action: Implement the permitting processfairly and consistentlyObjective 3: Provide permit staff the toolsneeded to process permit applicationsconsistently

Develop a user and training manual forpermit issuance

Develop a SPITS user and traininghandbook to ensure consistent data entry

Use SPITS to generate permits thathave standard conditions and reportingrequirements

Conduct a Service cross-program permitworkshop annually

Provide on-going training withinprograms on regulations and policies

Objective 4: Provide clear policies andregulations

Conduct an assessment of which permitregulations and policies need to berevised or developed and establish a 5-year schedule

Coordinate across programs on thedevelopment and review of permitregulations

Action: Treat conservationists as partnersObjective 5: Recognize permittees aspartners in conservation

Develop a policy that recognizes therole our partners play in wildlife andplant research, management, andconservation

Increase communication and outreachwith the regulated community about therole of permits in conservation

Objective 6: Recognize the value ofresearch and utilize the expertise ofpartners

Evaluate ways to identify in regulationsor policy that basic research can bebeneficial for some species

Action: Make the permitting processefficient and customer friendlyObjective 7: Process applications withinspecific time frames

Establish internal deadlines forprocessing applications based on risk

Establish procedures for trackingpermit applications

Objective 8: Use current technology tostreamline the permitting process

Create a Service permit web page toprovide a guide to the permit processingoffices, copies of regulations and policies,and link to a combined species query

Develop a system that allows for theelectronic access, submission, andtracking of permit applications

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“Be gentle withthe earth.”Dalai Lama

Tennessee purple coneflower© Maggie Tieger

Develop a system that allows forelectronic submission or scanning ofannual reports

Objective 9: Simplify the permittingprocess

Extend duration of permits whereappropriate

Make reporting requirements andfrequency of reporting appropriate forthe type of permit; investigatestandardizing forms for collecting annualreport data

Objective 10: Provide assistance on how toapply for a permit

Revise application forms to ask forinformation in clear, easy-to-understandlanguage and test their effectiveness

Develop decision trees to aid the publicand Service employees in deciding when aperson needs a permit and whichapplication form to submit

List telephone numbers in national andregional FWS directories by subject andpermit program

Revise and develop clear fact sheets

Use the SPITS-generated letter toinform the applicant that the applicationwas received, who the contact person is,and what the expected processing timeis, as appropriate

Objective 11: Consolidate permits

Review current permit types and developstandardized application forms so onepermit can be issued for multipleauthorizations

Develop standardized consolidated termsand conditions

Consolidate annual report requirements;evaluate the appropriate frequency ofreport submission or if information couldbe collected in some other way

Objective 12: Coordinate permitrequirements at different levels ofgovernment

Provide on the Service web page contactinformation for natural resourcesagencies of States and foreign countriesor provide a link to their web pages

Objective 13: Simplify port clearance

Allow electronic filing of the WildlifeDeclaration form

Action: Provide permit programs withsufficient supportObjective 14: Increase staff to meetcritical needs

Establish a National Permit Coordinatorand Washington Office permitcoordinator for each program

Hire a web master/outreach/SPITSspecialist

Evaluate Regional permit workloads andadd more staff as needed

Establish consistent, program-wideposition descriptions

Include permit programs in the budgetand Government Performance andResults Act processes

Objective 15: Educate internal andexternal audiences on the value, issues,and needs of permit offices

Use this vision document, fact sheets,and other mechanisms as outreach tools

Develop an outreach plan

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The mission of the U.S. Fish and

Wildlife Service is working with

others to conserve, protect and

enhance fish, wildlife, plants and

their habitats for the continuing

benefit of the American people.

U.S. Department of the InteriorU.S. Fish & Wildlife Service4401 N. Fairfx Drive, Room 700Arlington, VA 22203http://www.permits.fws.gov/Fall 2002