MAUI AXIS DEER GROUP

INITIAL FINDINGS AND RECOMMENDATIONS FOR A MAUI DEER MANAGEMENT PLAN

## DEVELOPED BY THE SUBCOMMITTEE OF

**PUBLIC INFORMATION AND DEER MANAGEMENT PLANNING**

**AUGUST 6, 2002**

Table of Contents

Introduction ...........................................................
2

Axis Deer on Maui ................................................... 2

Historical Perspective ................................................
2-3

Public Meeting and Working Groups ............................. 4

Workgroup Findings and Recommendations

Natural Resource ..........................................\... 6-7

Hawaiian Culture, Hunting and Ethics..................... 8-9

Economic. ..................................................... 10-12

MADG Statement of Recommendation ........................... 13

Maps

Deer-Vehicle Collisions

Range of Axis Deer

**Introduction**

The Maui Axis Deer Group (MADG) is pleased to present Initial Findings
And Recommendations For A Maui Deer Management Plan. This document is a
result of research findings presented at a public informational meeting
in August of 2001 and subsequent Working Group Findings and
Recommendations concluding with a MADG sub-committee recommendation for
an Island wide management plan. It has been developed through
consultation with Maui residents to identify comprehensive strategies to
address Maui's rapidly growing axis deer population. It combines input
from land and natural area managers (founders of MADG), hunters,
researchers, farmers and other interest groups on how to address
negative impacts associated with Maui's growing Axis Deer (*axis axis*)
population.

This document was drafted by the Subcommittee on Public Information and
Deer Management Planning of MADG (hereafter called the "Subcommittee").
Membership of the Subcommittee was expanded from its original size of
four MADG members to include representatives from the three stakeholder
working groups that were created from the Public Information Meeting
held in Kihei in August 2001 and a representative of the Mayor's Office.
The three working groups created were: Economic; Hunter, Ethics, and
Hawaiian Culture; and Natural Resources management. The two basic goals
for this document are 1) to document and include stakeholder input
through a process of public meetings and 2) to outline goals,
objectives, and strategies to serve as the basis for a Maui deer
management plan. Although much time was given to the successful
completion of this proposal, the Subcommittee understands that other
factors associated with a comprehensive deer management plan will need
to be worked out in the next step-in the writing of the plan itself.

#### **Axis Deer on Maui**

In September 1959, five deer were introduced to Maui on Kaonoulu Ranch,
Pu'u O Kali. Later in July 1960, four additional deer were released near
the 1959 release site (Waring 1996). These deer were introduced to Maui
by the Territorial Legislature for increased hunting opportunities and
to provide subsistence for island residents. In 1968, the Maui
population was estimated to be 85-90 animals (Kramer 1971). Today,
reports of deer sightings have occurred throughout Maui from Hana to
Kapalua with numbers estimated in the thousands island wide (Anderson
2001). The growing population of axis deer has created a number of
concerns ranging from vehicle accidents, property damage, poaching,
ecosystem damage, and disease to crop damage. In Hawaii, 90% of mature
females produce fawns annually when forage is good (Waring 1996).
Reproduction is year round. An unmanaged axis deer population will grow
exponentially and lead to increased environmental and human conflicts.

## 

## 

## Historical Perspective

In April of 1996, a group of landowners, land managers, and individuals
got together in an informal meeting to discuss the common concerns of
the growing axis deer population on Maui. This informal meeting evolved
into the formation of MADG, which developed the following as its
operative:

*A coalition of public and private agencies/individuals assembled to
develop strategies that preserve Maui's native ecosystems.*

MADG set for itself two very basic goals.

-   To develop axis deer control methods.

-   To provide information and public education regarding axis deer and
    their impact.

To accomplish these goals, the following actions were planned:

-   Investigate the biology of Maui's axis deer to provide a basis for
    management strategies. This investigation would encompass ongoing
    population studies including sightings, hunting reports, transects,
    surveys, capture and telemetry, as well as investigation into
    methods of reproductive control.

-   Develop cooperative management strategies with landowners and
    managers, hunting groups, and others affected by axis deer.

-   Share the work and findings of MADG with the public.

Although MADG in its operative recognized the need to protect Maui's
unique Hawaiian ecosystem as its primary focus, it also recognized the
importance that the concerns raised by axis deer be addressed for the
whole of Maui. A Maui wide management strategy is critical in
controlling deer population growth and expansion. The extent of the deer
problem became apparent as MADG members began to combine their knowledge
and obtained information from other deer experts. It was realized that
to really understand the extent of the deer problem, basic research was
needed for Maui. To this end, MADG solicited a deer study and members
were able to secure funds to initiate a study by February of 1997.
Steven B. Anderson, a University of California at Davis graduate
student, was selected as principal investigator. His doctorate thesis is
based on acquiring baseline data on axis deer population dynamics on
Maui. While his research included other areas, Steve did the bulk of his
field studies on Ulupalakua Ranch, which at that time was known as the
area with the highest deer concentration. His work also includes a
historical perspective, population expansion (statistics), resource and
community impacts, and methods of control.

By April of 2000, the field data collection for the deer study had been
completed. Preliminary reports were received by MADG and the group felt
that it was time to share this information with the general public. MADG
also realized that any type of

management strategy for Maui would not be possible without public,
local, and State government support. MADG held a public informational
meeting on Maui's growing

deer population in Kihei on August 30, 2001 in cooperation with the Maui
County Office of the Mayor [and by the]{.underline} Hawaii State
Department of Land and Natural Resources. During this meeting,
researcher Steve Anderson presented his findings. After presenting this
information the public was invited to participate in a series of
workshops to develop findings and recommendations related to the
management of Axis Deer on Maui.

**Public Meeting and Working Groups**

## About 150 people attended the August 2001 Public Informational Meeting, including Maui County Mayor James "Kimo" Apana and DLNR Chairman Gil Coloma-Agaran, who voiced concerns and offered support for the process. At that meeting, the public was invited to participate in one of four working groups representing different interests: 

## 

## Natural Resource Management; 

##  Economic; 

##  Public Safety (road hazards and health issues); and

##  Hawaiian Culture, Hunting and Ethics. 

## 

## The groups were asked to identify problems and suggest possible solutions. Approximately fifty percent of those who attended the August 2001 Public Meeting later signed up for the Working Groups. The largest group to form was that of the Hawaiian Culture, Hunting and Ethics. No one signed up for the Public Safety group, although public safety issues were addressed by the other Groups. The goal of the Groups was to make Findings and Recommendations to present back to the other Groups and the public. After a series of individual meetings (at least three per Working Group) the three different Groups met collectively and shared their separate Findings and Recommendations with each other in January of 2002. At the January meeting, the different Working Groups were asked to elect representatives to serve on the Subcommittee to draft a compilation of the Findings and Recommendations. The Subcommittee then decided to compile these different findings in the form of this document and report the results at another public meeting.

**Working Groups Findings & Recommendations**

## 

## 

## Natural Resource Management Work Group

## 

## Axis Deer Management Proposal Outline

### Introduction

> Currently there are no management actions to control the adverse
> affects of axis deer. The Natural Resource Management Group recommends
> the following outline as a basis in developing a general management
> plan. The general management plan should be used as a guideline to
> develop specifics or details for a comprehensive plan. Our findings
> suggest that immediate action must be taken to stop the threat to the
> watershed. Strategic fencing will stop encroachment and allow for
> effective management. Management of axis deer must incorporate all
> government agencies and strong representation from the public.

####### Outline

I.  Watershed is threatened by the encroachment of a growing Axis Deer
    population. Managers of watersheds both public and private are
    developing fencing strategies to protect these lands. The
    cooperation of landowners presents the possibility of creating an
    all-encompassing Maui Deer Management Plan.

II. Fencing strategies will divide Maui into three Axis Deer Management
    Zones, East, West, and Central Maui.

III. Axis Deer Management Plan to be incorporated over a period of time.

> A. Goals for a three-year period.

-   Coordinate efforts with the National Park, State, County or private
    landowners in the construction of the Axis Deer fence.

-   Completed East and West Maui fence lines will create three
    management zones.

B.  Goals for a ten-year period.

-   Establish public hunting units in Central Maui.

-   Develop Venison as a market product.

(Natural Resource Working Group continued)

-   "Zero Tolerance" of free ranging deer outside the private and public
    hunting areas.

-   Establish guidelines for axis deer ownership.

-   Develop a long-term management plan.

IV. The Projected Future

-   East and West Maui watersheds will be "deer free".

-   Public Axis Deer hunting units for Maui Residents.

-   Profit gain for private enterprise through Axis Deer Utilization.

-   "Zero tolerance" of free ranging deer outside the private and public
    hunting areas.

    **Number range CHAPTERHawaiian Culture, Hunting and Ethics Working
    Group**

Findings and Recommendations

November 2001

Three Working Group meetings (9/13, 9/27 & 10/25) have produced Findings
and Recommendations from this Group as follows: 1. Access; 2. Safety; 3.
Ethics; 4. Health; 5. Government; 6. Hawaiian Culture; 7. Public
Education.

Findings are in Bold followed by Discussion notes.

I. ACCESS - Findings and Recommendations: **[The Group finds that the
majority of the deer population on Maui is on Private Lands and that
increased public hunter access to those lands is necessary to control
the population. The Group would like to recommend or see that DLNR
officials meet with private landowners to determine if and how this can
be accomplished.]{.underline}** The Group offered up many suggestions on
how to accomplish this goal (e.g. by providing incentives, relieving
liability, possible funding sources, etc.) as well as how to run an
actual Game Management Program (e.g. fee, lottery, hunter education and
volunteer service). The Group feels strongly that Government needs to
take a more aggressive approach in trying to provide incentives and deal
with (and solve) any private landowner problems or concerns about
opening up some of their areas so public hunters can help control deer.

II\. SAFETY - Findings and Recommendations: **[The Group finds that
Safety is the most important factor to consider when determining any
type of control measure. Roads need to be made as safe as possible to
reduce deer/vehicle collisions. Any hunting of deer needs to be done
with careful consideration to the safety of any nearby people or
residences as well as hunter safety. The Groups would like to recommend
or see that any and all safety measures be taken to ensure our roadways
are safe and that hunting be carefully regulated and restricted when
done near houses or people.]{.underline}** The Group suggested that only
certain types of weapons be used in certain circumstances to ensure the
safest possible method (e.g. bow-hunting, shotguns, black-powder,
sharpshooters, etc.). Road safety devices available and used on the
Mainland to reduce deer/vehicle collisions should be considered for use
here. Fencing along highway to reduce deer/vehicle collisions. More
Hunter Education focusing on safety could be done to deal with special
circumstances.

III\. ETHICS - Findings and Recommendations: **[The Group finds that any
hunting or control of deer should be done in the most humane manner
possible and that no]{.underline}**

**[meat should be wasted. Total eradication of the deer from the Island
is not desirable, control is. The Group would like to recommend or see
that public]{.underline}**

(Hawaiian Culture, Hunting and Ethics Working Group continued)

**[hunters be given first consideration for any control as they have the
necessary abilities, skills and knowledge. No snaring and/or aerial
shooting of deer."]{.underline}**

IV\. HEALTH - Findings and Recommendations: **[The Group finds that deer
pose a potential health problem and that appropriate measures be taken
to keep deer out of the watershed and that deer populations be
monitored.]{.underline}**

V. GOVERNMENT - Findings and Recommendations: **[The Group finds that
Governmental Agency and Official involvement is necessary because they
have the authority and jurisdiction to deal with issues like Public
Health, Cooperative Game Management, Hunter Education and Highway
Safety. The Group would like to recommend or see that these Officials be
contacted and be included in any future action on deer issues under
their authority and jurisdiction.]{.underline}**

VI\. HAWAIIAN CULTURE - Findings and Recommendations: **[The Group finds
that deer may negatively impact Hawaiian plants and archaeological
sites. The Group would like to recommend or see that these negative
impacts be studied and reduced. It is necessary to preserve and educate
people about hunting and gathering rights by Hawaiians.]{.underline}**

More study of how much negative impacts are really caused by deer or say
verses tourists

# VII. PUBLIC EDUCATION - Findings and Recommendations: [The Group finds that more public awareness and community outreach is necessary to educate the public about the growing problem. The Group would like to recommend or see more and better information going out to the public about the problem and how to deal with it as well as information about the benefits of deer. It is important to gather more and better information on deer/vehicle collisions to learn how other places deal with the problem and to keep the public involved with the decision making process.]{.underline} The Group suggests that hunters need to become educated about Hawaiian plants and cultural issues and the public needs to be educated that control is necessary, not eradication. We suggest people form a group to call for selective hunting on private lands.

#  

# 

# 

# Number range CHAPTEREconomic Working Group

Findings and Recommendations

> November 2001

**Introduction:**

It was agreed that axis deer represent a genuine threat to Maui's
present and future economic and environmental health. It was also agreed
that while many industries may be adversely affected by axis deer,
agriculture is currently suffering and will continue to suffer the
greatest economic losses. Furthermore, it was agreed that as axis deer
were introduced on Maui by the State, the State should be responsible
for funding the development and implementation of a management program
that will mitigate the threat posed by axis deer and compensate for
losses incurred as a result of the introduction of axis deer on Maui.
Lastly, it was agreed that any management program developed and
implemented should have as its primary goal the creation of a humanely
controlled, sustainable, healthy, and economically contributing axis
deer population.

## Management:

1\. We find that axis deer pose an increasing risk to Maui's economy and
native ecosystems and that current control mechanisms do not work;
therefore, we recommend that an effective management plan be formulated
and implemented

2\. We find that information on axis deer is lacking, population counts
are unreliable, and educational programs are insufficient; therefore, we
recommend that the State provide funds to DLNR to gather information,
deliver effective count methods, and inform the public.

3\. We find that the DLNR uses regulated hunting on Lanai to manage the
axis deer population; therefore, we recommend that the State provide
funds to DLNR to implement on Maui those aspects of that program that
are applicable.

4\. We find that the mainland and New Zealand currently employ a variety
of effective deer management programs; therefore, we recommend that
these programs be researched and applied when and where possible.

5\. We find that axis deer harbor potentially serious diseases;
therefore, we recommend that funds be applied for and used to improve
inspection methods and facilities and to defray costs of carcass
disposal through the USDA, State Department of Agriculture, CDC, Rural
Community Development funds, and other agencies. Note: These agencies
and funding sources may provide the capital for rendering plants,
processing plants, or other acceptable biological waste disposal
solutions.

6\. We find that damage control permits are effective, but are an
improperly used and misunderstood control mechanism; therefore, we
recommend that a program be established to better utilize this resource.

(Economic Working Group continued)

7\. We find that there is no program through which private landowners
are compensated and protected for opening their lands to public hunting;
therefore, we recommend that such a program be put in place.

## Hunting:

1\. We find that current hunting laws do not effectively regulate the
caliber of gun that may be used on Maui; therefore, we recommend that
the DLNR set zones (shotgun with slug, black powder, no pistols, etc.)
and caliber regulations.

2\. We find that hunting fees are insufficient to cover game management
costs; therefore, we recommend that hunting fees be increased,
especially for non-residents.

## Government:

1\. We find that farmers bear the burden of economic damage caused by
axis deer and are least able to bear the cost of protecting their crops;
therefore, we recommend that money be made available to educate farmers
about the best available programs and methods to protect their crops and
to compensate them for their losses.

2\. We find that the economic potential from axis deer is limited by the
absence of sufficient rendering, processing, and disposal facilities;
therefore, we recommend that the legal and physical infrastructure to
farm, process, and distribute venison be put in place.

3\. We find that the State is responsible for the introduction of axis
deer on Maui, that their introduction has resulted in a minimum of
\$100,000 in losses to the private sector to date, and that these losses
continue to mount; therefore, we recommend that the State assume
financial responsibility for the losses and initiate corrective measures
as well as take an active role in formulating and implementing these
corrective measures.

## Law:

1\. We find that the economic potential from axis deer is limited by the
absence of game hunting operations; therefore, we recommend that the
legal infrastructure to conduct such operation be put in place.

2\. We find that axis deer will cause an increasing amount of personal
injury and property damage; therefore, we recommend that insurance
companies develop and provide affordable comprehensive insurance
policies to protect against these damages.

3\. We find that the largest axis deer herds reside on private land;
therefore, we recommend that access to private land be increased.

4\. We find Hawaii State tort law currently hinders the process of
hunting on private land by placing too much responsibility on private
landowners for any personal and/or property damage that occurs during a
hunt; therefore, we recommend that the law be changed to reduce
landowner responsibility and thus allow hunters greater access to
private land.

(Economic Working Group continued)

**Conclusion:**

Because of the clear and growing problem axis deer represent to Maui's
economy, a management program needs to be developed and implemented that
includes education, protection, and compensation for those affected. The
responsibility for supporting and funding that program lies chiefly with
the State as it introduced axis deer to Maui. In order to allow
regulated hunting to become an effective management tool, Hawaii's tort
laws need to be reformed. A regulated hunting program that could follow
as a result of this tort reform could provide the needed protection for
landowners and the desired access for hunters, as well as provide
perhaps the most practical method to humanely control and sustain the
deer population for the benefit of both residents and visitors.

###### 

###### 

###### MADG Statement of Recommendation

Land managers formed the Maui Axis Deer Group (MADG) in 1996 to address
concerns about increased negative impacts associated with Maui's growing
deer population. Research was done and results were shared with the
public in the summer of 2001 and Working Groups were formed to make
findings and recommendations on points of concern and interest. A MADG
sub-committee was formed that included representatives from each of the
Working Groups. Their job was to find common ground amongst the
different Working Group Findings to use as the basis for possible
action.

This Sub-Committee determined that a comprehensive, island-wide plan
would be the most effective and efficient way to address the negative
impacts of axis deer on Maui. It was further determined that the
formulation of such a plan would require time beyond the capability of
any current MADG member. Being that the State Department of Land and
Natural Resources (DLNR) has the most authority and jurisdiction over
the matter it was then determined that DLNR is the logical entity to
draft such a plan.

MADG recommends that proposals be submitted to obtain funding to help
DLNR hire a consultant to write such a plan, following a process similar
to ones used on the mainland to deal with the negative impacts of
growing white-tail deer populations. MADG will continue to work with
both public and private parties to find solutions to problems associated
with Maui's growing deer population.

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