FIL ED U.S. COURT OF APPEAL S EL EVENTHCI RCUI T May 5, 2009 THOMAS K. KAH

N CL ERK [PUBLIS H] IN THE UN ITED STATES COURT OF APPEALS FOR THE ELE VENTH CIRCUIT

__ __ __ __ __ __ __ __ __ __ __ __ No. 0 8- 10 79 9

__ __ __ __ __ __ __ __ __ __ __ __ D. C. Dock etNo. 0 5- 23 04 5- CIV-KM M MIC COSUKEE TRIBE OF INDIANS OF FLORIDA, a fed eral ly-reco gn iz edInd ia n t rib e, Pl ai nt iff -Ap pe ll an t, ve rs us UNITED STAT ES OF AMERIC A, U.S. FISH AND W ILDLIFE SERVICE, etal. Defen da nt s- App el le es , NATURAL RESOURCES DEFENSE COUNCIL, Int erv en or -Ap pe ll ee.

__ __ __ __ __ __ __ __ __ __ __ __ App eal fro m

th e Uni te d S ta te s Di st ric t Co urt fo r th e So uthe rnDis tri ctof F lo rid a

__ __ __ __ __ __ __ __ __ __ __ __ _ (Ma y 5, 2 00 9) Befo re TJ OFLAT andCARNES, Ci rcu itJu dg es , andBOW EN, Dis tri ctJu dg e. *

Honora ble Dudley

H. B owen, Jr., United States District J udg e for the Southern District * of Ge org ia, sitting by

designation.CARNES, Ci rcu itJu dg e:

Fo r cen tu rie s, a b ro ad , sh al lo w sh eetof f res h wat er tha t co ve redm os t o f So ut h F lo rid a fl owe d s ou th fro m Lake Okee ch ob ee t o t he Flo rid a Bay. Thi s ph en om en on was t he “riv er o f gr as s” or Ev erg la de s, wh ic h s up po rte d u ni qu e an d frag il e fl or a an d faun a. As s o o fte n h ap pe ns with n atur al tre as ur es , peo pl e so ug ht to co nt ro l an d m an ip ul at e th e Eve rg la de s fo r th ei r own en ds . After t he Sta te of Fl or id a’s effo rts to tam e th e Eve rg la de s fa il ed , in19 48 th e Arm y Co rp s o f Eng in eers go t i nv ol ve d. The Co rp s und ert oo k the Cen tra l & So ut he rnFlo rid a Fl oo d P ro ject, wh ic h i t ho pe d wo ul d c on tro l fl oo di ng , di ve rt wa te r away fro m de ve lo pi ng area s, p ro vi de a so ur ce fo r irrig at in g c ro ps , faci li ta te recre at io n, an d “ en ha nc e” wi ld li fe. See Mi cco su ke e Trib e o f In di an s v . Uni te d S ta te s, 9 80 F. Sup p. 4 48 , 45 4 (S .D. Fla. 19 97 ). In o rd er t o b en d t he wate r to it s wi ll , th e Co rp s cr eat edth ou sa nd s o f m il es of can al s an d l ev ees supp orte d b y sco res of p um

ps , gat es , andda m s. Th is m as si ve pl um bi ng pro ject drai ne d the no rth ernpo rti on of t he ori gi na l Ev erg la de s fo r ag ric ul tu ral us e an d d iv ert edwate r in to di st in ct , dee pe r W at er Co ns erv at io n Are as fo r co nt ro ll edrel eas e in to th e so ut he rnpa rt o f th e o rig in al area , whi chbe cam e Eve rg la de s Nat io na l Pa rk . There fol lo wedwhatth e g ov ern m en t artfu ll y cal ls

2“unpl an ne d e nv iro nm en ta l co ns eque nc es .” Thi s ca se in vo lv es on e o f th os e

co ns eque nc es , whi chpi ts a sp arro w aga in sta ha wk. I. The Cap e Sab le sea si de sp arro w, whi chwe wil l re fer t o a s s im pl y “ th e sp arro w,” li ve s p rimaril y inan d a ro un d Ev erg la de s Nat io na l Pa rk . It was li st edas en da ng eredin19 67 an d re cei ve d c rit ic al habi ta t d es ig na ti on in19 77 . The frag il it y of th e sp arro w as asp eci es st em s fr om two of i ts att rib ut es . It h as a sh ort l ife sp an , an d i ts ne st in g s uc ces s d ep en ds on sp eci fic ki nd s o f ve ge ta ti on an d wat er l ev el s. If i t i s t o s urvi ve , th is sp eci es m us t h av e fav or ab le bre ed in g c on di ti on s wi th ou t lo ng pe rio ds of i nt errupt io n. Th e sp arro w exi st s i n s ix subp op ul at io ns , all of whi chli ve inor a ro un d t he Ever gl ad es . One o f th em is lo cat edap artfro m

th e ot he rs , whi chm ig htpro vi de th e sp eci es with am eas ur e o f pr ot ect io n a ga in st ex ti nc ti on if s om e cal am it y were t o wi pe ou t the ot he r fi ve subp op ul at io ns . Thi s im po rta ntou tl y in g g ro up , cal le d “ Subp op ul at io n A,” l iv es di rect ly sou th of the S12 ga te s— ou ts id e o f th e b ird ’s des ig na te d c rit ic al habi ta t— an d i t d ecre as edfro m m or e th an2,6 00 bi rd s i n 1 99 2 t o 1 12 bi rd s i n 2 00 6. Th e Co rp s’ m etho d o f rel eas in g wat er i nt o t he Ever gl ad es , sp eci fic al ly at it s S- 12 ga te s, h as be enbl am ed fo r th atde cl in e.

3The Ever gl ad e Sn ai l Ki te , a type o f ha wk, l iv es inth e m ars he s o f Fl or id a

an d C ub a. Lik e th e sp arro w, th e k it e was als o l is te d a s en da ng eredin19 67 an d rece iv edcri ti cal habi ta t d es ig na ti on in19 77 . Andli ke th e sp arro w, th e k it e’s su rv iv al de pe nd s o n s pe ci fic wate r le ve ls . Kite s fe edpri m ari ly on app le sn ai ls , whi chrequi re p eri od s o f in un da ti onto rep ro du ce, b utth e b ird s n es t i n wo od y ve ge ta ti onth atdi es off

if t ha t i nu nd at io n l as ts to o l on g o r if th e wat er l ev el go es to o h ig h. It i s, i n t ha t re sp ect , a Gol di lo ck s k in d o f bi rdwhen itco m es to wate r le ve ls —n otto o l ow, n otto o h ig h. Du rin g ape rio d o f reg io na l dro ug ht , Flo rid a’s to ta l k it e p op ul at io n d ecl in edfro m 3,4 00 bi rd s i n 1 99 9 t o 1 ,70 0 i n 2 00 2, b utit ap pe ars to ha ve st ab il iz edsi nc e th en . The k it e’s de si gn at edcri ti cal habi ta t in cl ud es m or e th an84 1,0 00 acre s, o f whi chjus t o ve r a thi rdare d ire ct ly north of th e S-1 2 g at es inW at er Co ns erv at io n Are a 3 A (W CA-3 A). The pro bl em , th en , is th atth e k it es pre fer s te ady an d m od erat e to lo w water le ve ls ab ov e th e S-1 2 g at es , whi le th e sp arro ws p refe r lo w water be lo w th e S-1 2 ga te s. Bot h b ird s ar e p ro te ct edby the End an ge redSp eci es Act o f 19 73 , 16

1 U.S.C. § 1 53 1– 15 44 . The Actou tl aws th e “ ta ke ” o f an y en da ng eredsp eci es an d i t A third enda

ng ere d bird, the wood stork, is also af fec ted by the Corps’ oper ation of the 1 S-12 g ates. Thewood stork’s ra ng e is much broa der tha

n that of the kite a

nd the sparr ow, covering muc h of the southea stern United States. As of 2006, the wood stork population included more than 11,000 bre edingpairs. The Tribe’ s only contention that involves the wood stork is its challeng e to the Servic e’s incide ntal take state ment, which will be addr essed in Part VI of this opinion. 4de fin es “ ta ke ” to in cl ud e “ ha rm ,” whi chintu rnin cl ud es “ si gn ifi can t h ab it at

m od ifi cat io n o r de gr ad at io n wh ere i t ac tu al ly kil ls or i nju res wil dl ife by si gn ifi can tl y

im pa iri ng ess en ti al be ha vi or al pa tt ern s, i nc lu di ng bre ed in g, fe ed in g, orsh el te rin g.” 16 U.S.C. § 1 53 2( 19 ); 5 0 C .F.R. § 1 7.3 . Sect io n 7 (a)( 2) requi res ev ery fed eral ag en cy to en su re tha t i ts act io ns wil l no t jeo pa rd iz e th e co nt in ue d e xi st en ce o f an y en da ng eredsp eci es . 16 U.S.C. § 15 36 (a)( 2) . To co or di na te th ei r effo rts to co m pl y with s ect io n 7 (a)( 2) , th e ag en ci es in vo lv ed , her e th e Arm y Co rp s o f Eng in eers an d the Fis h & W il dl ife Serv ic e, co ns ul t wi th each ot he r. Whe n apro po se d a ge nc y act io n m ay

adve rs el y affe ctanen da ng eredsp eci es or i ts cri ti cal habi ta t, the Serv ic e cre at es a “bi ol og ic al op in io n” de te rm in in g wh ethe r th e act io n wo ul d jeo pa rd iz e th e sp eci es . 50 C.F.R. § 4 02 .14 . If th e p ro po se d a ct io n wo ul d n otjeop ard iz e th e sp eci es bu t s ti ll m ig ht res ul t i n i nc id en ta l h arm

to it , th e Servi ce at ta ch es to th e b io lo gi cal op in io n a n in ci de nt al tak e st at em en t es tabl is hi ng th e te rm s an d c on di ti on s u nd er wh ic h t he in ci de nt al tak e m ay

oc cu r. 50 C.F.R. § 40 2.1 4( i). Inth e ear ly 198 0s Co ng res s au th or iz eda res tru ctur in g o f th e Co rp s’ water
m an ag em en t s y st em

inord er t o re st or e wil dl ife inth e Eve rg la de s. So m eo ne de ci de d t ha t the be stway to fig ur e o utho w to co rrec t the unpl an ne d en vi ro nm en ta l co ns eque nc es was t o u nd ert ak e a s eri es of t ria l-a nd -err ortes ts , each
5la st in g s ev eral y ears . Duri ng each tes t, wat er wo ul d b e rel eas edfro m va rio us ga te s i n v arying am ou nt s. Und er o ne of t he se , “ Test7,” the Co rp s b eg anrel eas in g la rg e am ou nt s o f wat er thr ou gh th e S-1 2 g at es . Tho se ga te s ar e lo cat edjus t t o t he no rth of t he Ever gl ad es be twee n t he habi ta ts of t he en da ng eredki te s an d t he en da ng eredsp arro ws. Tes t 7 , whi chbe ga n i n 1 99 5, was sch edul edto co nt in ue un ti l 1 99 9. In19 98 th e Servi ce an d t he Co rp s, wh os e eyes were o n t he sp arro w, beg an to m od ify the ir wa te r rel eas es inres po ns e to a dr am at ic de cl in e in th e sp arro w’ s po pu la ti on be lo w th e S-1 2 g at es . To av oi d fl oo di ng th e li tt le bi rdin to ex ti nc ti on , th e Co rp s cr eat edan“ In te rim Stru ctur al an d Op erat io na l Pl an ” th atalt eredTest7 by clo si ng th e g at es du rin g s pa rro w bre ed in g s eas on . In 1 99 9 t he Serv ic e is su eda bi ol og ic al op in io n c on cl ud in g t ha t co nt inue d fl oo di ng th ro ug h S -1 2 wo ul d l eadto th e ex ti nc ti on of t he sp arro w bu t al so warn in g tha t “ st ack in g” hi ghwate r ab ov e S12 m ig htadve rs el y

im pa ctth e k it e. Bet ween19 99 an d 2 00 2, the Co rp s an d t he Serv ic e co ns ul te d a ndde ve lo pe d th e “ In te rim Ope rat io na l Pl anforth e Pro te ct io n o f th e Cap e Sab le Seas id e Sp arro w” (In te rim Pl an ). Duri ng th e sa m e p eri od , a reg io na l dro ug htcu t the nu m be r of ki te s s ta te wid e in ha lf, fr om 3,4 00 to 1,7 00 bi rd s. The Serv ic e is su eda se co ndbi ol og ic al op in io n i n 2 00 2, thi s t im e an al y zi ng th e In te rim Pl anan d 6co nc lu di ng itwou ldno t jeo pa rd iz e th e k it e o r adve rs el y m od ify its habi ta t. The Co rp s the n i m

pl em en te d t he Int eri m

Pla n, wh ic h c ha ng edth e S-1 2 wat er re le as e sc he du le to crea te at l eas t s ix ty con ti nu ou s d ay s ea chy ear, dur in g s pa rro w br eed in g s eas on , inwhi chwate r be lo w th e g at es wou ldrem ai n u nd er 6 .0 fe et ab ov e se a le ve l. Water b eg anto ba ckup no rth of t he ga te s— in th e k it es ’ cri ti cal habi ta t an d o n M ic co su ke e tr ib al lan d. Bi rd s ca nn otsu e, bu t a t rib e canan d t hi s on e d id
. 2 II . InNov em

be r 20 05 th e Mi cco su ke e Trib e fi le d alaws ui t ag ai ns t the Fis h & W il dl ife Serv ic e, ch al le ng in g i ts 20 02 ap pr ov al of t he Int eri m Pla n. Me anwhi le , in a se pa rat e cas e in vo lv in g t he same area tha t was fil edun de r th e Nat io na l Env iro nm en ta l Po li cy

Act, the di st ric t co urt o rd eredth e Servi ce t o p rep are a Supp le m en ta l En vi ro nm en ta l Im pa ctSta te m en t b as edonth e In te rim Pl an . Mi cco su ke e Trib e o f In di an s v . Uni te d S ta te s, 4 20 F. Sup p. 2 d 1 32 4, 1 34 5 (S .D. Fl a. 20 06 ). The Se rv ic e an d t he Co rp s the n c on su lt edag ai n t o a ss es s the im pa ct s of co nt in ui ng th e In te rim Pl an . In No ve m be r 20 06 th e Servi ce i ss ue d a no th er
In fac t, this particular tribe sue s quite a bit, often on beha lf of an e nvironmental intere st, 2 as is its right. See, e .g ., Miccosukee Tribe v. S. Fla . Water Mgmt. Dist., 559 F.3d 1191 (11th Cir. 2009); Friends of the Eve rg lades v. S. Fla . Water Mgmt. Dist., 2006 W L3635465 (S.D. Fla . Dec . 11, 2006), appe al docke ted, No. 07-13829 ( 11th Cir. Aug. 13, 2007) (includingthe Miccosuke e Tribe a s a plaintiff); Micc osukee Tribe v. So. Everg lades Restoration Alliance, 304 F .3d 1076 (11th Cir. 2002); Miccosukee Tribe v. United States, 105 F .3d 599 (11th Cir. 1997). 7bi ol og ic al op in io n, thi s t im e in cl ud in g t he Supp le m en ta l En vi ro nm en ta l Im pa ct St at em en t, b utitst il l fo un d t ha t the ki te wou ldno t b e jeop ard iz edby allo win g t he In te rim Pl anto co nt in ue un ti l 2 01 0 o r 20 11 for th e g oo d o f th e sp arro w. The Mi cco su ke e Trib e, who se ey e was on th e k it e an d o n t rib al lan ds in W CA-3 A, bel ie ve d t ha t the ki te an d t he lan ds were jeo pa rd iz edby the Serv ic e’s act io ns . As a res ul t, the Trib e fi le d asec on d am en de d c om pl ai ntinFeb ru ary 20 07 , cla im in g t ha t the Serv ic e’s 20 06 bi ol og ic al op in io n v io la te d t he Act an d t ha t th e Servi ce’s co ns ul ta ti on with t he Co rp s was de fic ie ntun de r se ct io n 7 of t he Act. The parti es fil edcro ss m ot io ns forsu m m ary jud gm en t, an d t he di stric t co urt gr an te d t he go ve rn m en t’s m ot io n. Th is is th e Trib e’s ap pe al
. II I. W e rev ie w de n ov o t he di st ric t co urt’s g ran t o f su m m ary jud gm en t an d u se th e sa m e st an da rdof r ev ie w ut il iz edby the di st ric t co urt. Si erraClub In c. v. Leav it t, 4 88 F.3d90 4, 9 11 (11 th Cir . 20 07 ). Bio lo gi cal op in io ns are fi na l ag en cy act io ns subjec t t o ju di ci al rev ie w un de r th e Adm in is tra ti ve Pro cedur e Act , 5 U.S.C. § 7 06 (2 )(A). Ben ne ttv. Sp ear, 5 20 U.S. 15 4, 1 78 , 11 7 S . Ct. 1 15 4, 1 16 9 (1 99 7) . Spe ci fic al ly, th e st an da rdis whet he r th e b io lo gi cal op in io n i s “ arb it rary, cap ric io us , an abu se of d is cret io n, o r ot he rwis e n otinacco rd an ce wi thlaw.” 5 U.S.C. § 7 06 (2 )(A); Fun d fo r Ani m al s, In c. v. Ri ce, 8 5 F .3d53 5, 5 41 (11 th Cir
. 819 96 ) (“ On ap pe al , th is co urt, i n re vi ewin g t he adm in is tra ti ve reco rd , app li es th e .

. . arbi tra ry

an d c ap ric io us st an da rdof r ev ie w.”). The arb it rary andcap ric io us st an da rdis “ ex ceed in gl y de fere nt ia l.” S ie rra Cl ub v. VanAntwerp , 52 6 F .3d13 53 , 13 60 (11 th Cir . 20 08 ) (quo ta ti onm ark s om it te d) . W e are no t au th or iz edto subs ti tu te ou r jud gm en t fo r th e ag en cy ’s as lo ng as i ts co nc lu si on s ar e rat io na l. Id . W e m ay , ho wev er, fi ndanag en cy act io n arb it rary andcap ric io us wher e th e ag en cy ha s re li edon fact or s wh ic h Co ng res s h as no t i nt en de d i t t o c on si de r, en ti rel y fai le d t o c on si de r an im po rta ntasp ectof t he pro bl em , off eredanex pl an at io n fo r it s d eci si on th at ru ns co un te r to th e ev id en ce b efo re the ag en cy , or i s s o i m pl au si bl e th atit co ul d n otbe asc rib edto a di ffer en ce i n v ie w or t he pro du ctof a ge nc y ex pe rti se . Alab am a-To m

bi gb ee Ri ve rs Co al . v. Kem ptho rn e, 47 7 F .3d12 50 , 12 54 (11 th Cir
. 20 07 ) (ci ti ng Mo to r Veh ic le s M frs . Ass ’n v. St at e Farm Mu t. Au to Ins . Co., 4 63 U.S. 29 , 43 , 10 3 S . Ct. 2 85 6, 2 86 7 (1 98 3) ). The Supr em e Co urt h as in st ru ct edus th atwhen anag en cy

“ is m ak in g p red ic ti on s, wi th in it s ar ea o f sp eci al ex pe rti se , at th e fro nt ie rs of s ci en ce . . . as o pp os edto si m pl e fi nd in gs of f

act , a rev ie win g c ou rt m us t g en eral ly be atit s m os t d efer en ti al .” Bal t. Gas & Elec . Co. v . Natu ral Res . Def. Co un ci l, 4 62 U.S. 87 , 10 3, 1 03 S. Ct. 2 24 6, 2 25 5 (1 98 3)
.
IV.

9The Mi cco su ke e Trib e laun ch es a th ree- fro ntass au lton th e 2 00 6 b io lo gi cal

op in io n a ndth e in ci de nt al tak e st at em en t. The Trib e’s fi rs t co nt en ti on is th at th e 20 06 bi ol og ic al op in io n i s ‘no t i n a cco rd an ce wi th law’ bec au se itfai ls to fol lo w pr op er p ro cedur es , whi chrequi re u si ng th e b es t av ai labl e sc ie nt ifi c d at a, gi vi ng th e b en efi t o f th e d oubtto th e sp eci es , ana lyzin g t he en vi ro nm en ta l b as el in e an d cu m ul at iv e eff

ect s, an d i ss ui ng a pr op er i nc id en ta l t ak e st at em en t. See 5 U.S.C. § 70 6( 2) (A). The Tri be ’s sec on d c on te nt io n i s tha t the 20 06 bi ol og ic al op in io n i s arb it rary andcap ric io us be cau se itarri ve s atco nc lu si on s tha t ar e co un te r to th e sc ie nt ifi c d at a in th e rec or d o r th atare s o i m pl au si bl e th ey

go be y on d a n acce pt ab le di ffer en ce o f ex pe rt o pi ni on . See Alaba m a-To m bi gb ee, 4 77 F.3dat 12 54 . The Tri be ’s th irdco nt en ti on is th atth e in ci de nt al tak e st at em en t i s d efi ci en t be cau se itim

pr op erl y qu an ti fie s i nc id en ta l t ak e in term s o f habi ta t m ark ers an d fai ls to pro vi de a m ean in gf ul tri gg er fo r re-c on su lt at io n.

A. The End an ge redSp eci es Act re qu ire s the Fis h & W il dl ife Serv ic e, in pr ep ari ng it s b io lo gi cal op in io ns , to us e “ th e b es t s ci en ti fic an d c omm erci al da ta av ai labl e.” 1 6 U.S.C. § 15 36 (a)( 2) ; 5 0 C .F.R. § 4 02 .14 (g )(8 ). The g en eral vi ew is th atth e ag en cy

de ci de s wh ic h d at a an d s tu di es are the “be stav ai labl e” b ecau se th atde ci si on is it se lf asci en ti fic de te rm in at io n d es erv in g d efer en ce. See Mars h v
. 10Or. Natu ral Res . Cou nc il , 49 0 U.S. 3 60 , 37 7– 78 , 10 9 S . Ct. 1 85 1, 1 86 1 (1 98 9)

(“ Whe n s pe ci al is ts expr es s co nf li ct in g v ie ws, an ag en cy

m us t h av e d is cret io n t o rel y on th e rea so nabl e o pi ni on s o f it s o wn qua li fie d e xp ert s ev enif, as anori gi na l
m at te r, th e co urt m ig htfin d c on tra ry vi ews m or e p ers ua si ve .”); Bal t. Gas & Elec ., 46 2 U.S. at10 3, 1 03 S.Ct . at 2 25 5; SanLui s v . Bad gl ey , 13 6 F . Sup p. 2 d 1 13 6, 11 51 (E.D. Cal. 2 00 0) (ex pl ai ni ng th atun de r th e End an ge redSp eci es Act, “ [a]n ag en cy ha s wi de lat itud e to de te rm in e wha t i s the be stsci en ti fic an d c omm erci al da taav ai labl e” (quo ta ti on m ark s o mit te d) ). In d eci di ng whatis “be stav ai labl e” th e Servi ce i s re qu ire d t o s eekou t an d c on si de r al l ex is ti ng sci en ti fic da ta . Heart woo d, In c. v. U. S. Fo res t Se rv ., 38 0 F .3d42 8, 4 36 (8t h C ir. 2 00 4)
. The Trib e arg ue s tha t we s ho ul d n otaffo rdth e u su al de fere nc e to th e Serv ic e’s de ci si on ab ou t wh ethe r th e k it e is jeop ard iz edbe cau se inreac hi ng th at de ci si on itirr at io na ll y

ex cl ud edcert ai n s ci en ti fic da tafro m co ns id erat io n. Th e Trib e arg ue s tha t the Serv ic e ig no reda nu m be r of stud ie s an d s ci en ti st s’ st at em en ts th atsh ow “ al arm in g” an d dram at ic de cl in es inth e k it e p op ul at io n. Bu t th e Trib e’s arg um en ts do no t h ol d wat er. Fi rs t, the Trib e arg ue s tha t the Serv ic e ig no redth e Sn ai l Ki te Dem og rap hy Rep orts for

20 02 , 20 03 , and20 04 th atwere cr eat edby D r. W il ey Kit ch en s an d Ju li enMart in . Howev er, as th e Trib e co nc ed es , th e 2 00 5 re po rt wa s u se d, an d
11in de ed , th e b io lo gi cal op in io n c it es itrep eat ed ly. Bec au se each y ear’s re po rt i s

cu m ul at iv e an d i nc lu de s al l the da tafro m th e p rev io us y ears , th e 2 00 5 re po rt en co m pa ss es th e o th ers . Seco nd , th e Trib e arg ue s tha t the Serv ic e ig no reda 20 03 Po pu la ti on Viab il it y Anal y si s p erfo rm edby D r. Kit ch en s tha t co nt ai ne d ash arp warn in g ab ou t s na il ki te s v an is hi ng fro m Flo rid a. Howev er, far

fro m ig no rin g t ha t re po rt, th e Servi ce s en t i t fo r pe er re vi ew, wher e o th er s ci en ti st s que st io ne d i t b ecau se of it s fa il ur e to di sc lo se it s m etho do lo gy or m od el inpu ts . One re vi ewer co m m en te d in 20 04 th atth e rep ort h ada “ ve ry hi gh rat io
. . . of

sp ecu la ti on to actua l d at a, I th in k t he hi gh es t I h av e ev er s een !” Bec au se th atpe er re vi ew cam e two y ears be fo re the bi ol og ic al op in io n was is su edin20 06 , itwas n ot , as t he Trib e ch arg es , a “po stho c rat io na li zat io n” forex cl ud in g t he rep ort fr om th e o pi ni on . Infact , de sp it e th e n eg at iv e p eer r ev ie ws, s om e o f th e rep ort’s fa ctua l fi nd in gs were in cl ud edinth e b io lo gi cal op in io n; am on g t he m was t he rep ort’s es ti m at e th atth e ki te po pu la ti on ha d dro pp edby fifty pe rcen t b etween19 99 an d 2 00 2. The res t o f th e Trib e’s arg um en ts th atth e Servi ce d idno t u se th e “be st sc ie nt ifi c an d c omm erci al da taav ai labl e” al l s te m fro m th e ex cl us io n o f sp eci fic nu m eri cal de ta il s, o r ev ensp eci fic word s, fr om th e b io lo gi cal op in io n. Fo r in st an ce, the Trib e p lay s up t he fai lu re o f th e o pi ni on to m en ti on th e 2 00 5 Ki te 12Rep ort’s s ta te m en t tha t WCA-3A d idno t s up po rt asi ng le su cces sf ul ki te fle dg li ng in 20 05 . Howev er, the bi ol og ic al op in io n d oe s n ot e “po orrep ro du ct io n years,” an d i t i nc lu de s ch art s s ho win g t he lo w su rv iv al rat e fo r al l k it e fl ed gl in gs , reg ard le ss of l oc at io n, fr om 20 04 th ro ug h 2 00 5. No r is th e b io lo gi cal op in io n’s st at em en t tha t “ so ut he rnW CA-3 A con ti nu es to supp ort l arg e num be rs of s na il ki te s an d s na il ki te ne st in g” in co ns is te ntwith n o kno wn fl ed gl in gs su rv iv in g i n on e p art ic ul ar y ear. Whatm ak es th e two fact s co ns is te ntis th atdu rin g s uc ces sf ul br eed in g years WCA-3 A canpro du ce h un dr ed s o f fl ed gl in g k it es . Si m il arl y , th e Trib e co m

pl ai ns th atth e Servi ce d idno t “ an al y ze” ast at em en t m ad e b y Dr. Phi l Dar

by to t he effe ctth atm or e h ig h wat er ab ov e th e S-1 2 g at es wou ldlea d t o c on ti nu edlo w den si ti es of t he ap pl e sn ai ls th atki te s ea t. The bi ol og ic al op in io n, h owe ve r, do es cit e Dr. Darb y ’s st at em en t, an d i t al so sp eci fie s th atap pl e sn ai l d en si ty decl in edeig ht y -two pe rcen t b etween20 03 an d 2 00 4. The Trib e arg ue s tha t the Serv ic e fai le d t o c on si de r a 2 00 6 a na lysis , pe rfo rm edby Marti n, tha t i nd ic at es de gr ad at io n o f th e k it e h ab it atan d n ot es th e zero -s uc ces s 2 00 5 b reed in g s eas on . Alth ou gh th e Servi ce d idno t u se Mart in ’s se lf- de sc rib ed“pr el im in ary” con cl us io ns , itdi d u se hi s d at a an d i n fa ctrep ro du ced two tab le s d ire ct ly from

hi s re po rt.

13The Trib e subm it s tha t the Serv ic e fai le d t o “ an al y ze” a no th er re cen t

Kit ch en s an d M art in stud y co nc lu di ng th atki te s d o n otm ov e to ot he r are as in se arch of f

oo d a s re ad il y

as wa s p rev io us ly bel ie ve d. Th e Trib e ad m it s, h owe ve r, th atth e b io lo gi cal op in io n “ m en ti on s” th is is su e. Co ns is te ntwith t he ne w rep ort, th e b io lo gi cal op in io n c on cl ud es th atki te s d o m ov e le ss freque nt ly between is ol at edwetl an ds th ansci en ti st s o nc e b el ie ve d. Fi na ll y , th e Trib e g ro us es th atth e Servi ce i gn or edane-m ai l fr om Dr. Kit ch en s i n wh ic h h e d es cri be d t he habi ta t d eg rad at io n a s “ rap id ” an d t he ki te s’ ne st in g fa il ur e in 20 05 as “ al arm in g.” The bi ol og ic al op in io n, h owe ve r, co nt ai ns al l o f th e rel ev an t d at a upo n wh ic h Dr. Ki tc he ns ’ co nc lu si on s wer e b as ed . All t ha t se em s t o b e m is si ng is th e wor d “ al arm in g.” Whi le th e 2 00 6 b io lo gi cal op in io n’s p red ic ti on s d o d iff er fro m th os e o f so m e sc ie nt is ts who ha ve stud ie d t he ki te , th e b as ic da tais no t i n d is pu te an d was ta ke n i nt o a cco un t b y

th e Servi ce wh enitdra fte d t he op in io n. Th atis all th e End an ge redSp eci es Act re qu ire s the Serv ic e to do with the “be stsci en ti fic an d co m m erci al da taav ai labl e.” 1 6 U.S.C. § 15 36 (a)( 2) ; Ma rs h, 4 90 U.S. at 3 77 –7 8, 10 9 S . Ct. at18 61 . B.

14The Trib e co nt en ds th atth e le gi sl at iv e h is to ry of t he End an ge redSp eci es Act d em on st rat es th atCo ng res s g en eral ly w is he d t o “ gi ve th e b en efi t o f th e d oubt to th e sp eci es .” H.R. Rep . No. 9 6- 69 7, at12 (19 79 ) (Co nf . Rep .), as r ep rin te d i n 19 79 U.S.C.C.A.N. 25 72 , 25 76 . The Tri be arg ue s tha t tho se ni ne word s fr om th e Jo in t Ex pl an at ory

Sta te m en t o f th e Co nf

eren ce Co m

m it te e, qu ot edinth e Hou se Co nf eren ce Re po rt, re qu ire a pr es um pt io n i n fa vo r of

th e sp eci es if t he ev id en ce i s ba la nc edbe twee n l ik el y

jeop ardy an d n o jeo pa rdy . To b eg in with, we ar e rel uc ta ntto readin to th e wor ds th atCo ng res s h as en act edas l aw wor ds th atitdi d n oten actas l aw. See M ie de m a v . Maytag Co rp ., 45 0 F .3d13 22 , 13 28 (11 th Cir . 20 06 ); Harris v. Garn er, 2 16 F.3d97 0, 9 76 –7 7 (1 1t h C ir. 2 00 0) (enbanc ); C BS Br oa d., In c. v. Ech os tar Co m m ’ns, 2 65 F.3d 11 93 , 12 13 –1 4 (1 1t h C ir. 2 00 1)
. Pu tt in g t ha t re lu ct an ce as id e fo r th e ti m e b ei ng , th e co nt ex t o f th e b en efi t o f th e d oubtlan gu ag e in th e co nf eren ce re po rt s ug ge st s o nl y th atag en ci es , in cl ud in g th e Servi ce, ca nn othi de be hi ndun cert ai n s ci en ti fic da tato sh irkth ei r du ti es un de r th e Act . The Rep ort s ta te s: If the bi ol og ic al op in io n i s re nd eredon th e b as is of i na de qu at e in fo rm at io n th enth e fed eral ag en cy

ha s a c on ti nu in g o bl ig at io n t o m ak e a rea so nabl e effo rt t o d ev el op th atin fo rm at io n. Thi s l an gu ag e co nt in ue s t o g iv e th e b en efi t o f th e d oubtto th e sp eci es , and itwou ldco nt in ue to pl ace t he bu rd enon th e act io n a ge nc y to de m on st rat e to th e co ns ul ti ng ag en cy

th atit s ac ti on wil l n otvi ol at e Sec ti on 7(A) (2 ).

15Fu rth erm or e th e la ng ua ge wil l n otab so lv e fed eral ag en ci es fro m . . . de ve lo pi ng ad equa te in fo rm at io n o n wh ic h t o b as e a b io lo gi cal op in io n. H.R. Rep . No. 9 6- 69 7, at12 (Co nf . Rep .), rep rin te d i n 1 97 9 U.S.C.C .A.N. at 25 76 . The Nin th Cir cu itis th e o nl y co urt o f ap pe al s tha t h as an al y zedth is be ne fitof t he do ub t l an gu ag e. InCo nn er v . Bur fo rd , 84 8 F .2d14 41 , 14 54 (9t h C ir. 1 98 8) , th at co urt s ta te d: Inli gh t o f th e ESA requi rem en t tha t the ag en ci es us e th e b es t s ci en ti fic an d co m m erci al da taav ai labl e to in su re tha t p ro te ct edsp eci es are n ot jeop ard iz ed , 16 U.S.C. § 1 53 6( a)(2 ), th e FWS cann otig no re av ai labl e bi ol og ic al in fo rm at io n o r fai l t o d ev el op pro jecti on s o f oi l an d g as act iv it ie s whi chm ay

in di cat e p ot en ti al co nf

li ct s b etweende ve lo pm en t an d the pr es erv at io n o f pr ot ect edsp eci es . W e h ol d t ha t the FW S v io la te d the ESA by fail in g t o u se th e b es t i nf orm at io n a va il ab le to pre pa re co m pr eh en si ve bi ol og ic al op in io ns . . . . To h ol d o th erwi se wou ldev is cera te Co ng res s’ in te ntto gi ve th e b en efi t o f th e d oubtto th e sp eci es . 84 8 F .2dat 1 45 4. Th e Co nn er o pi ni on do es no t s ug ge stth atth ere i s an y pr es um pt io n i n fa vo r of

th e sp eci es if, as inth is cas e, th ere i s ab un da ntda ta . In Co nn er the Serv ic e v io la te d t he Act b y is su in g abi ol og ic al op in io n wi th ou t u si ng th e b es t av ai labl e d at a. Becaus e th atis no t the cas e h ere, the Trib e’s rel ia nc e o n Co nn er i s m is pl aced
. The Trib e al so rel ie s o n Natur al Res ou rces Defen se Co un ci l v . Kem pt ho rn e, 50 6 F . Sup p. 2 d 3 22 , 36 0 (E.D. Cal . 20 07 ), bu t i n t ha t ca se th e co urt u se d the be ne fitof t he do ub t l an gu ag e o nl y to for ce the ag en cy

to pe rfo rm

it s o bl ig at io n, no t t o d ic ta te th e co nc lu si on s i t s ho ul d re ach . The co urt s ta te d t ha t “ anag en cy 16can no t ab di cat e it s re sp on si bi li ty to ev al ua te th e im pa ct s o f anact io n o n asp eci es by lab el in g a va il ab le in fo rm at io n ‘un cert ai n,’ bec au se do in g s o v io la te s C on gr es s’ in te ntth atag en ci es ‘ gi ve th e b en efi t o f th e d oubtto th e sp eci es .’ ” Id
. One di st ric t co urt, h owe ve r, se em s t o h av e ta ke n t he po si ti on th e Trib e advo cat es . See Ro ckCree k Al li an ce v . U. S. Fis h & W il dl ife Serv ., 39 0 F . Sup p. 2d99 3, 1 00 8 (D. M on t. 2 00 5) (“ [A] tie i n the ev id en ce s ho ul d g o t o t he sp eci es .”). The co nc lu si on inRo ckCree k was ba se d i n p arton si gn ifi can t s ci en ti fic bl un de rs by the Serv ic e. Tho se bl un de rs in cl ud edus in g astudy de si gn edfora po pu la ti on of 30 0 t o 4 00 be ars to de te rm in e acc ep tabl e m orta li ty rates fora po pu la ti on of 3 0 to 40 , aga in stth e ex pl ic itadvi ce o f th e stud y ’s autho r. Id. at10 08 –0 9. Th e rec or d rev eal s n o s im il ar m is ta ke s i n t he Serv ic e’s us e o f sc ie nt ifi c d at a o r stud ie s i n t he pr es en t ca se . Evenif we wer e to ad op t the Ro ckCree k p os it io n t ha t a t ie inth e ev id en ce g oe s t o t he sp eci es , th ere i s n o t ie he re. The sci en ti fic da tabe fo re the Serv ic e d oe s n otco m

pe l the co nc lu si on th atth e ev id en ti ary ne ed le po in ts strai gh t up . Inan y

ev en t, n o c ou rt d eci si on ha s ev er re li edso le ly on t he co nf eren ce rep ort’s b en efi t o f th e d oubtlan gu ag e to fin d tha t a b io lo gi cal op in io n was arb it rary andcap ric io us . The n eedto gi ve a sp eci es th e b en efi t o f th e d oubt can no t s ta ndalo ne as ach al le ng e to a bi ol og ic al op in io n. 17C.

Und er s ect io n 7 (a)( 2) of t he End an ge redSp eci es Act, the Fis h & W il dl ife Serv ic e’s co ns ul ta ti on pro ces s m us t “ [e]val ua te th e eff

ect s o f th e act io n a nd cu m ul at iv e eff

ect s o n t he li st edsp eci es or c rit ic al habi ta t.” 5 0 C .F.R. § 40 2.1 4( g) (3 ). Thatrequi res th e Servi ce t o d efi ne anen vi ro nm en ta l b as el in e. 50 C.F.R. § 40 2.0 2. Th at , inturn , requi res a de sc rip ti on of “ th e p as t an d p res en t im pa ct s o f al l Fe de ral , Sta te , or p riv at e act io ns an d o th er hum anact iv it ie s i n t he act io n area, the an ti ci pa te d i m pa ct s o f al l p ro po se d F ed eral pro jects inth e act io n area. . . an d the im

pa ctof S ta te or p riv at e act io ns whi chare co nt em po ran eo us with t he co ns ul ta ti on inpro gr es s.” § 40 2.0 2. The re ar e two curren t s ta te pro jects withi n t he 84 1,0 00 acre s o f th e k it es ’ cri ti cal habi ta t. The se in it ia ti ve s, ca ll edACCELER8 , are i nt en de d t o a ss is t the fed eral pl anof r es to rin g t he Ever gl ad es . The ACCELER8 pro jects are n ot m en ti on edinth e Servi ce’s 2 00 6 b io lo gi cal op in io n, an d the Trib e arg ue s tha t thi s om is si on m ean s tha t the Serv ic e fai le d t o m eetit s o bl ig at io n t o c reat e a co m pl et e en vi ro nm en ta l b as el in e fo r th e k it e. The S erv ic e res po nd s tha t i t re li edon it s o wn sc ie nt ifi c co nc lu si on s, re ach eddu rin g t he Cle anW at er Actpe rm it ti ng pro ces s fo r ACCELER8 , to supp ort i ts bi ol og ic al op in io n’s fi nd in g t ha t the pro jects wou ldno t adve rs el y im pa ctth e k it e. Tho se co nc lu si on s, m em or ia li zedinlet te rs , were n ot 18pa rt o f th e ad m in is tra ti ve reco rdinth is cas e an d wer e st ru ckby the di st ric t co urt,

th ou gh th e co urt d idco ns id er the Serv ic e’s be li ef tha t the ACCELER8 pro jects wou ldha ve no adve rs e im pa cton th e k it e. The Trib e’s arg um en t tha t the en vi ro nm en ta l b as el in e is in ad equa te fai ls
. The reg ul at io ns do requi re the bi ol og ic al op in io n t o i nc lu de th e “ im pa ct s” of a ny pa stor p res en t s ta te pro

jects onth e sp eci es . 50 C.F.R. § 40 2.0 2. Itdo es no t fo ll ow, h owe ve r, th atth e reg ul at io ns requi re ea chbi ol og ic al op in io n t o t ho ro ug hl y di sc us s s ta te act io ns th atth e Servi ce i n o th er co ns ul ta ti on s h as alr eady an al y zed an d d et erm in eddo no t i m pa ctth e sp eci es . The Tri be is un ab le to sh ow tha t the two ACCELER8 pro

jects lo cat edwithi n t he 84 1,0 00 acre s o f th e k it es ’ cri ti cal habi ta t h av e an y

adve rs e im

pa cton th e k it e, orth atany on e b el ie ve s tha t the y do
. InAug us t an d Dec em

be r 20 05 th e Servi ce d et erm in edth atACCELER8 do es no t adve rs el y im pa ctth e k it e an d re co rd edth atde ci si on inlet te rs th atare a m at te r of publ ic reco rd
. The Trib e’s arg um en t tha t anen vi ro nm en ta l b as el in e requi rin g a di sc us si on of i m

pa ct s m us t re ha sh anearl ie r ex pl an at io n o f why a pro ject h as no im pa ct s i s n otco nv in ci ng . The Trib e urg es th atth e en ti re en vi ro nm en ta l b as el in e an al y si s i n the 20 06 bi ol og ic al op in io n i s i na de qu at e b ecau se itfai ls to an al y ze the cum ul at iv e im

pa ct of all pa stan d p res en t ac ti on s o n t he ki te . The Tri be arg ue s tha t the bi ol og ic al
19op in io n d oe s n otco ns id er the effe cton th e k it e o f th e n in e y ears of s pa rro w

pr ot ect io n u nd ert ak enbe twee n 1 99 7 a nd20 06 , andth atitdo es no t an al y ze ag gr eg at e im

pa ct s o n t he ki te fro m

pro bl em s i n o th er p art s o f it s m or e th an 84 1,0 00 -acr e ran ge . To th e co nt rary, pag es 38 to 43 of t he bi ol og ic al op in io n di sc us s the hi st ory

of t he ki te po pu la ti on th ro ug h 2 00 6, wi th si gn ifi can t fo cu s o n th e p op ul at io n c ras h b etween19 99 an d 2 00 2. Fu rth er, atpa ge s 6 1 t o 6 3, the op in io n d is cu ss es th e eff

ect s o f en vi ro nm en ta l p ro bl em s i n Lak e Oke ech ob ee an d in th e Kis si m

m ee Ch ai n o f Lak es , whi chare the ot he r pa rts of k it e te rri to ry . Fi na ll y , th e Trib e arg ue s tha t the bi ol og ic al op in io n c on ta in s an in su ffi ci en t

“ cu m ul at iv e eff

ect s an al y si s” un de r 50 C.F.R. § 40 2.0 2 a nd§ 4 02 .14 . A pro pe r cu m ul at iv e eff

ect s an al y si s m

us t “ ta ke in to acco un t ‘futur e st at e o r pr iv at e act iv it ie s, n otin vo lv in g F ed eral act iv it ie s, tha t ar e rea so nabl y cert ai n t o o ccur in th e act io n a rea.’” 50 C.F.R. § 40 2.0 2. Fed eral act io ns , andth os e in vo lv in g fed eral ag en ci es , are ex cl ud edfro m cu m ul at iv e eff

ect s an al y si s b ecau se th ey are subjec t t o the ir o wn co ns ul ta ti on pro ces s. In te rag en cy Co op erat io n R eg ul at io ns fo r Dep art m en t o f th e In te rio r, 51 Fed . Reg . 19 92 6, 1 99 33 (Ju ne 3, 1 98 6) . This
m at te rs be cau se st at e an d p riv at e p ro jects inth e aff

ect edareafal l wi th in th e juri sd ic ti on of t he Arm

y Co rp s o f Eng in eers an d t he reb y in vo lv e a fed eral ag en cy . The refo re, the act io ns wou ldbe ex em ptfro m co ns id erat io n i n t he curren t 20cu m

ul at iv e eff

ect s an al y si s. Ev enso , th e b io lo gi cal op in io n b rie fly con si de rs th e po ss ib il it y

of t he re b ei ng so m e d ev el op m en t o ut si de of the Co rp s’ con tro l. It co nc lu de s tha t “ ba se d o n t he st atus of t he sp eci es di sc us se d p rev io us ly andth e st atus of t he sp eci es inth e act io n a rea, we b el ie ve th atth is
. . . is no t ex pe ct edto affe ctth e rec ov ery orsu rv iv al of the woo d s to rkor s na il ki te .” Thatis en ou gh an al y si s. Bec au se th e Trib e h as no t d em on st rat edth atth e Servi ce fa il edto co ns id er an y m ajorsci en ti fic workor a ny m at eri al factwhen itren de redth e 2 00 6 b io lo gi cal op in io n, we re

ject i ts pro cedur al att ackon th atop in io n. We turnno w to th e Trib e’s ch al le ng e to th e co nc lu si on s tha t the Serv ic e drew fro m th e sc ie nt ifi c works an d m at eri al fact s. V. The Trib e co nt en ds th atth e co nc lu si on s co nt ai ne d i n t he 20 06 bi ol og ic al op in io n a re ar

bi tra ry an d c ap ric io us . See g en eral ly A laba m a-To m bi gb ee, 4 77 F.3d at12 54 (no ti ng th atitis arb it rary andcap ric io us foranag en cy to “ of fer[ ] an ex pl an at io n fo r it s d eci si on th atrun s co un te r to th e ev id en ce b efo re the ag en cy , or is so im pl au si bl e th atitco ul d n otbe asc rib edto a di ffer en ce i n v ie w or t he pro du ct of ag en cy ex pe rti se ”).

21The 2 00 6 b io lo gi cal op in io n c on ced es th atth e In te rim Pl anwil l co nt in ue

to ha rm th e k it e h ab it atby floo di ng it . It ac kn owl ed ge s tha t wat er l ev el s ab ov e 10 .5 fe ethi gh er tha n s ea l ev el de gr ad e k it e h ab it atan d t ha t wat er l ev el s h av e ex ceed ed10 .5 fe etinten of t he pa stth irt een y ears , com pa redwith o nl y

fou r ti m es du rin g t he forty y ears be fo re an y sp arro w pro te ct io n was un de rta ke n. The Serv ic e ex pe ct s 1 84 ,00 0 a cres , whi cham ou nt s t o t wen ty perce ntof t he ki te s’ cri ti cal habi ta t, t o b e fl oo de d t o 1 0.5 feeteach y ear tha t the Int eri m Pla n c on ti nu es . The bi ol og ic al op in io n a ckno wled ge s tha t the Int eri m Pla n m ay als o c au se wate r le ve ls to de cl in e rap id ly in k it e h ab it atdurin g t he sp rin g, thr eat en in g k it e ne st s. Th atpro bl em

is ad dr es se d i n t he in ci de nt al tak e st at em en t. The op in io n al so ex pl ai ns , ho wev er, tha t i n “ m os t years, the ne stfai lu re ra te withi n WCA-3A i s ex pe ct edto be les s” th anwhatwou ldoc cu r wit h the m ax im um all owabl e wat er dr op di sc us se d i n t he in ci de nt al tak e st at em en t. Fi na ll y , th e o pi ni onno te s tha t un de r so m e h y dr ol og ic al co nd it io ns th e o pe rat io n o f th e In te rim Pl anm ay actua ll y be fav or ab le to ki te ne st in g c on di ti on s, tho ug h i t d oe s n otsp eci fy whatco nd it io ns orho w. The op in io n c on cl ud es : Co nt in ue d [I nt eri m

Plan] op erat io ns are ex pe ct edto res ul t i n c on ti nu ed habi ta t d eg rad at io n wi th in W CA-3 A, whi chha s b een on e o f th e m os t si gn ifi can t ar eas of k it e h ab it atwithi n t he pa st30 y ears . In ad di ti on , [In te rim Pl an ] op erat io ns are ex pe ct edto res ul t i n re du cedne stsu cces s o f ki te s wi th in W CA-3 A, reduc edfor ag in g h ab it atsu it ab il it y , andreduc ed ab un da nc e o f th e k it e’s pr im ary pr ey . Thes e im pa ct s ar e ex pe ct edto li m it 22po pu la ti on gro wth inW CA-3 A andpo ss ib ly caus e fu rth er re du ct io ns inth e

ov eral l k it e p op ul at io n. Ho wev er, b ecau se sn ai l k it es are l on g- li ve d, h av e hi gh rat es of a du ltsu rv iv al , andco nt in ue to su cces sf ul ly nes t i n o th er po rti on s o f th ei r ran ge inso uthe rnFlo rid a, th es e im pa ct s ar e n otan ti ci pa te d to ap pr eci ab ly redu ce the li ke li ho odof s urvi va l an d re co ve ry of t he sp eci es in th e wil d. Deg rad at io n o f de si gn at edcri ti cal habi ta t wi th in W CA-3 A is ex pe ct edto co nt inue un de r [the Int eri m Pla n], bu t thi s i s re ve rs ib le with i m pr ov ed hydro lo gi c co nd it io ns . No p erm an en t l os s o f cri ti cal habi ta t i s ex pe ct ed
. Inot he r wor ds , des pi te all of t he ha rm th atitwil l caus e th e k it e an d k it e habi ta t, the Serv ic e b el ie ve s tha t In te rim Pl an ’s S-1 2 c lo si ng s dur in g s pa rro w br eed in g s eas on wil l n otjeop ard iz e th e co nt in ue d e xi st en ce o f th e k it e o r adve rs el y m od ify its cri ti cal habi ta t wi th in th e m ean in g o f th e Act . See g en eral ly 16 U.S.C. § 1 53 6( a)(2 ) (fed eral ag en cy act io n m us t n otbe li ke ly to “

jeop ard iz e th e co nt in ue d e xi st en ce o f an y en da ng eredsp eci es or res ul t i n t he de st ru ct io n o r adve rs e m od ifi cat io n o f [the cri ti cal ] habi ta t o f su chsp eci es ”). Evi de nt ly the Serv ic e is un de r th e im

pr es si on th atflo od in g t wen ty perce ntof t he ki te s’ cri ti cal habi ta t t o ade pt h t ha t k il ls th e woo dy veg et at io n t he bi rdli ke s t o p erch on , th at dr iv es off th e ap pl e sn ai ls itli ke s t o e at , andth atreduc es it s n es ti ng su cces s i s n ot

“ adve rs e m od ifi cat io n” of c rit ic al habi ta t wi th in th e m ean in g o f th e Act . The Serv ic e as se rts th at“no pe rma ne nt lo ss of c rit ic al habi ta t i s ex pe ct ed .” (em ph as is ad de d) Bu t the Serv ic e d oe s n otcit e, an d we a re u nabl e to fin d, an y de ci si on 23ho ld in g t ha t n eg at iv e im pa ct s o n asp eci es ’ cri ti cal habi ta t m us t b e p erm an en t t o am ou ntto “ adve rs e m od ifi cat io n.” Nor d idth e Servi ce re ly on i ts ownreg ul at io n de fin in g “ adve rs e m od ifi cat io n,” 50 C.F.R. § 40 2.0 2, t o re ach th atco nc lu si on , whi chis un de rs ta nd ab le si nc e th atreg ul at io n h as be enin va li da te d b y two fed eral co urts of app eal s. Gif

fo rdPin ch otTaskFo rce v . U. S. Fis h & W il dl ife Serv ., 37 8 F.3 d 1 05 9, 1 06 9– 70 (9t h C ir. 2 00 4) (strik in g d own th e “ adve rs e m od ifi cat io n” de fin it io n c on ta in edin50 C.F.R. § 40 2.0 2) ; Si erraClub v . U. S. Fis h & W il dl ife Serv ., 24 5 F .3d43 4, 4 41 –4 2 (5 th Cir . 20 01 ) (s am e). Whe th er s ho rt- te rm

im pa ct s o n c rit ic al habi ta t am ou ntto “ adve rs e m od ifi cat io n” de pe nd s t o alar ge ex te nton th e li fe cycle o f th e sp eci es . Som e sp eci es m ay

be erad ic at edif t he ir h ab it at s ar e n eg at iv el y affe ct edev enfora rel at iv el y sh ort t im e. Res to rat io n o f a h ab it atcan no t re su rrec t the de ad . In Pa ci fic Co as t Fe de rat io n o f Fi sh erm en ’s Ass ’ns v . Uni te d S ta te s B ur eauof R ecl am at io n, 42 6 F .3d10 82 , 10 94 (9t h C ir. 2 00 5) , th e Nat io na l M ari ne Fis he rie s Se rv ic e su gg es te d am

ul ti -p ha se pro

ject t o re st or e ad equa te wate r fl ow t o t he en da ng ered co ho sal m on . The p ro bl em was t ha t the co ho ha d o nl y a th ree- y ear l ife cy cl e, an d un de r th e ag en cy ’s pl aneig hty ears wou ldpa ss be fo re wat er fl ows were re st or ed to m eetth e co ho ’s nee d. Id . Und ers ta nd ab ly, th e Co urt n ot edth at“ al l the wate r in th e wor ldin20 10 an d 2 01 1 wi ll no t p ro te ctth e co ho , forth ere wi ll be no ne 24[le ft] to pro te ct . It i s n otsu ffi ci en t fo r th e ag en cy to im po se th es e fl ows witho ut ex pl ai ni ng ho w th e fl ows wil l p ro te ctcri ti cal habi ta t an d e ns ur e th atsu ffi ci en t wate r is inth e m ai n s te m forco ho to surv iv e dur in g t he se fir stfiv e g en erat io ns .” Id .; s ee al so Pac. Co as t Fe d’n o f Fi sh erm en ’s Ass ’ns v . Nat’l Ma rin e Fi sh eri es Serv ., 26 5 F .3d10 28 , 10 38 (9t h C ir. 2 00 1) (“ Giv enth e im po rta nc e o f th e n earte rm pe rio d o n t he li st edsp eci es ’ su rv iv al itis di ffi cu ltto jus ti fy [th e ag en cy ’s] ch oi ce n otto ass es s d eg rad at io n o ve r a t im e fram e th attak es in to acco un t the actua l b eh av io r of

th e sp eci es inda ng er.”). The po in t o f th e two Paci fic Co as t d eci si on s i s tha t ad ve rs e m od ifi cat io n m us t b e m eas ur edby tak in g i nt o a cco un t the li fe cycle an d b eh av io ral pa tt ernof th e en da ng eredsp eci es inqu es ti on . Any bi ol og ic al op in io n tha t p la ns to all ow sh ort-t erm

habi ta t d eg rad at io n—

pr es um ab ly, as pa rt o f a l on ge r-t erm pl anth at an ti ci pa te s the sp eci es ’ fu tu re re co ve ry —m us t carefu ll y

co ns id er the li fe cycles an d b eh av io ral pa tt ern s o f th e sp eci es to av oi d c rip pl in g t ha t re co ve ry . It i s n ot en ou ghth atth e h ab it atwil l re co ve r in th e fu tu re i f th ere i s a s eri ou s ri skth atwhen th atfutur e arr iv es th e sp eci es wil l b e h is to ry . Tha t p rin ci pl e, ho wev er, i s n otfat al to th e 2 00 6 b io lo gi cal op in io n’s co nc lu si on . The o pi ni on do es no t fo cu s s ol el y on whethe r th e lo ss of c rit ic al habi ta t wi ll be pe rm an en t; itals o d et erm in es effe cton th e sp eci es by tak in g i nt o 25acco un t the ki te ’s li fe cycle an d b eh av io r. The o pi ni on st at es , andth e Trib e d oe s

no t d is pu te , th atth e k it e is a lo ng -li ve d b irdwith ahi gh adul t s urvi va l ra te an d a n en orm ou s ra ng e co ve rin g 8 41 ,00 0 a cres —m or e th an1,3 00 squa re m il es —o f de si gn at edcri ti cal habi ta t. No r do es th e Trib e co nt en d t ha t the ki te wil l b e ex ti nc t aft er s ev eral m or e y ears of h ig h wat er co ve rin g t wen ty perce ntof t hi s cr it ic al habi ta t. In de ed , S-1 2 c lo si ng s h av e o ccu rredsi nc e 1 99 8, an d t he ki te po pu la ti on , th ou gh als o a ffl ic te d b y

a dr ou gh t b etween19 99 an d 2 00 2, ap pe ars to ha ve st ab il iz edsi nc e 2 00 2. So far the ki te ha s s urvi ve d t he adve rs e im pa ctof t he ga te cl os in gs , m ak in g t hi s ca se di st in gu is habl e fro m th e Pac ifi c Co as t ca se s. See Paci fic Co as t, 4 26 F.3dat 1 09 4 (o bs erv in g tha t n o c oh o s al m on co ul d p os si bl y su rv iv e to en

joy th ei r res to redhabi ta t af

te r fi ve ge ne rat io ns witho uten ou gh wate r). Mo reo ve r, as we po in te d o utearl ie r, we do owe ahi ghlev el of d efer en ce t o th e Servi ce’s s ci en ti fic de te rm in at io ns . The d efer en ce o wedth e 2 00 6 b io lo gi cal op in io n i s es pe ci al ly stro ng be cau se th e ag en cy ha d t o p red ic t fu tu re h y dr ol og ic co nd it io ns an d e st im at e th e li ke li ho od , ext en t, an d dur at io n o f in jury to a s pe ci es . Bal t. Gas & Elec ., 46 2 U.S. at10 3, 1 03 S.Ct . at 2 25 5 (n ot in g t ha t wh enanag en cy

“ is m ak in g p red ic ti on s, wi th in it s ar ea o f sp eci al ex pe rti se , at the fro nt ie rs of

26sc ie nc e . . . as o pp os edto si m pl e fi nd in gs of f

act , a rev ie win g c ou rt m

us t g en eral ly be at i ts m os t d efer en ti al ”). W e li m itou r co nc lu si on , of c ou rs e, to th e fac ts of t hi s ca se . Tho se fact s in vo lv e a l on g- te rm

pro gr am for res to rin g t he Ever gl ad es ’ na tu ral flo w ina way th atwou ldcau se tem

po rary flo od in g o f twe nt y pe rcen t o f th e cri ti cal habi ta t o f a lo ng -li ve d s pe ci es of k it e wit h ahi gh adul t s urvi va l ra te an d awid e ran ge . The flo od in g i s b ei ng do ne inaneffo rt t o a vo idth e ex ti nc ti on of a n e nd an ge red sp arro w inth e are a. The a im is to ev en tu al ly rest or e th e n atur al flo w of t he Eve rg la de s, a re st or at io n wh ic h h op efu ll y wil l b en efi t b ot h e nd an ge redbi rd s. In li gh t o f th es e fac ts , th e Servi ce’s d et erm in at io n i n i ts 20 06 bi ol og ic al op in io n t ha t th e act io n wi ll no t jeo pa rd iz e th e k it e o r adve rs el y m od ify its habi ta t wi th in th e m ean in g o f th e End an ge redSp eci es Act i s n otarb it rary andcap ric io us . VI. The Trib e’s la stco nt en ti on is th atth e Fi sh & W il dl ife Serv ic e’s in ci de nt al ta ke st at em en t i s d efec ti ve be cau se itfai ls to sp eci fy , innu m be rs of b ird s, h ow m uc h “ take ” is pe rm is si bl e. An i nc id en ta l t ak e st at em en t m ay lawf ul ly autho riz e ha rm to anen dang eredsp eci es as l on g a s the st at em en t s et s a ‘tri gg er’ for fu rth er co ns ul ta ti on at the po in t wh ere t he all owe d i nc id en ta l t ak e is ex ceed ed , a po in t at whi chth ere i s a r is k o f jeop ard iz in g t he sp eci es . 50 C.F.R. § 40 2.1 4( i)( 4) . To
27pr ov id e th e requi redtri gg er the in ci de nt al tak e st at em en t m us t “ [s ]peci f[y ] th e im pa ctof s uc h i nc id en ta l t ak in g o n t he sp eci es ,” 16 U.S.C. § 1 53 6( b) (4 )(i ), in a way th atwil l al ertth e ag en cy when th e al lo wedin ci de nt al tak e h as be enex ceed ed
. The reg ul at io ns do no t cl ari fy ho w th is in ci de nt al tak e “ im pa ct ” sh ou ldbe qu an ti fie d. Se e 5 0 C .F.R. § 4 02 .14 (i) (1 )(i ) (n ot in g o nl y th atth e in ci de nt al tak e st at em en t m

us t “ [s ]peci f[y ] th e im

pa ct , i.e. the am ou ntor e xt en t, o f su chin ci de nt al ta ki ng on th e sp eci es ”). The Serv ic e’s “ Fi na l ESA Sec ti on 7 Co ns ul ta ti on Handbo ok ,” ho wev er, do es pro vi de gu id an ce ab ou t h ow i m pa ctonth e sp eci es m ay

be m eas ur ed . U. S. Fi sh & W il dl ife Serv . & Nat’l M ari ne Fis he rie s Se rv ., Fin al ESA Sect io n 7 Co ns ul ta ti on Handbo ok4-4 7 (1 99 8) , ava il ab le at ht tp ://www.fws .go v/ en da ng ered/c on su lt at io ns /s 7h ndbk/s 7h ndbk .ht m . The 1 Han db oo k s ta te s tha t i nc id en ta l t ak e o f a s pe ci es m ay be “ expr es se d a s [e it he r] the nu m be r of in di vi du al s t ak enor t he ex te ntof h ab it atli ke ly to b e d es tro y edor di sturbe d . . . . Whe n p rep ari ng anin ci de nt al tak e st at em en t, a s pe ci fic nu m be r . . . orlev el of d is tu rb an ce t o h ab it atm us t b e d es cri be d.” Id. The Handbo okthus al lo ws the Serv ic e to us e, witho utsp eci fic jus ti fic at io n, h ab it atim pa ct

C o p i e s o f t h e i n t e r n e t m a t e r i a l s c i t e d i n t h i s o p i n i o n a r e o n f i l e i n t h e C l e r k ’ s 1 O f f i c e . S e e 1 1 t h C i r . R . 3 6 , I . O . P . 1 0 . 28m eas ur em en ts (al so cal le d “ habi ta t m ark ers ”) t o e xp res s t ak e in st eadof u si ng

actua l h eadco un ts of m em be rs of t he sp eci es . Fo ll owi ng it s Han db oo k, the Serv ic e el ect edto us e h ab it atim pa ct m eas ur em en ts forth e sp arro w, ki te , andwoo d s to rk in st eadof c ou nt in g t he bi rd s. 2 Inth e in ci de nt al tak e st at em en t at ta ch edto th e 2 00 6 b io lo gi cal op in io n, re co ns ul ta ti on is no t trig ge redby any nu m be r of actua l d eaths or b y

an y am ou ntof po pu la ti on de cl in e b utin st eadby w at er l ev el s i n WCA-3A. Th e Servi ce d eci de d th atforth e sp arro w, any flo od in g i nt errupt in g s ix ty con se cu ti ve day s o f lo w water an d c ov eri ng m or e th ansi xt y -s ix square m il es be lo w S-1 2 wo ul d e xc eed in ci de nt al tak e an d t rig ge r re-c on su lt at io n. Fo r th e woo d s to rk , th e tr ig ge r was an in crea se inwate r de pt h o f m or e th aneig htin ch es ov er an areaof o ve r si xt een squa re m il es withi n t he woo d s to rk ’s cor e fo rag in g area b etweenDecem be r an d May of eac h year. The k it e’s tr ig ge r was an y dro p i n wat er d ep th of m or e th an1.7 feetat g au ge 3A-2 8 b etweenFeb ru ary an d M ay of e ach y ear. The fir stqu es ti on is whet he r th e End an ge redSp eci es Act al lo ws i nc id en ta l ta ke st at em en ts to ex pr es s i m pa ctinterm s o f habi ta t m ark ers rathe r th anactua l po pu la ti on de cl in es . The Se rv ic e arg ue s tha t the Act i s s il en t o n tha t p oi nt , th at un de r it s Han db oo k s uc h h ab it atm ark ers are ac cep tabl e, an d t ha t the Handbo okis
S e e s u p r a f

o o t n o t e 1 . 2 29en ti tl edto de fere nc e und er Ch ev ro n U.S.A., In c. v. Natur al Res ou rces Defen se

Co un ci l, 4 67 U.S. 83 7, 1 04 S. Ct. 2 77 8 (1 98 4)
. The Supr em e Co urt h as st at edth atord in ari ly “po li cy st at em en ts , age nc y m anua ls , anden fo rcem en t g ui de li ne s, al l o f whi chlac k t he for ce o f la w [] do no t warra ntCh ev ro n- st y le de fere nc e.” Ch ris te ns env. Harr is Co un ty, 52 9 U.S. 5 76 , 58 7, 1 21 S. Ct. 1 65 5, 1 66 2 (2 00 0) (ad op ti ng Sk id m or e d efer en ce i ns te adforan ag en cy op in io n l et te r). Howe ve r, Ch ris te ns enex pl ai ne d tha t the ag en cy op in io n le tt er i n tha t ca se ha d n otun de rg on e an y form al ad

jud ic at io n o r no ti ce-and
co m m en t ru le m ak in g, an d s ug ge st edth atth e “ rig or s o f th e Adm in is tra ti ve Pro cedur e Act , in cl ud in g p ub li c n ot ic e an d c omm en t” wou ldwarran t g reat er de fere nc e. Id . (qu ot at io n m ark s o m it te d) . In Un it edSta te s v . MeadCo rp ., th e Co urt ad de d t ha t “ a v ery go odin di cat orof d el eg at io n m eri ti ng Ch ev ro n t reat m en t” is whenCo ng res s au th or iz es anag en cy to en ga ge ina pr oc es s o f adm in is tra ti ve ru le m ak in g re ga rd in g t he rel ev an t l eg is la ti on . 53 3 U.S. 2 18 , 22 9– 30 , 12 1 S . Ct. 21 64 , 21 72 –7 3 (2 00 1) . Not ic e-an d- co m m en t ru le m ak in g i s thu s “ si gn ifi can t . . . in po in ti ng to Ch ev ro n aut ho rity .” Id
. Here the re i s n o que st io n t ha t the Secr et ary of th e In te rio r an d t he Fis h & W il dl ife Serv ic e are au th or iz edby Con gr es s t o i ss ue reg ul at io ns th athave th e fo rce o f la w inim

pl em en ti ng th e End an ge redSp eci es Act. Babb it t v . SweetHom e 30Ch ap te r of

Cmtys. fora GreatOr., 51 5 U.S. 6 87 , 70 8, 1 15 S. Ct. 2 40 7, 2 41 8 (1 99 5) (“ Whe n i t en act edth e ESA, Co ng res s d el eg at edbro adadmin is tra ti ve an d in te rp ret at iv e p owe r to th e Sec ret ary. ”); see als o 1 6 U.S.C. § § 1 53 3, 1 53 6. Th e Han db oo k was crea te d fo ll owi ng th e sa m e ad m in is tra ti ve pro cedur es th atoff ic ia l reg ul at io ns un de rg o. A p rel im in ary Han db oo k was publ is he d i n the Fed eral Reg is te r in 19 94 , andaft er a p eri odforpubl ic co m m en t was all owe d andth en ex te nd ed , th e Han db oo k was fin al ly ado pt edin19 98 . See 6 0 F ed . Reg . 87 29 , 87 29 –3 0 (F eb . 15 , 19 95 ) (ex te nd in g t he pe rio d o f publ ic co m m en t fr om

th e or ig in al no ti ce tha t was publ is he d i n t he Fed eral Reg is te r at59 Fed . Reg . 65 78 1, 65 78 1– 82 (Dec. 2 1, 1 99 4) ). Und er Me adan d C hr is te ns en , th e Servi ce’s Han db oo k i s en ti tl edto Che vr on de fere nc e. 53 3 U.S. at22 9– 30 , 12 1 S . Ct. at 21 72 ; 5 29 U.S. at 5 87 , 12 1 S . Ct. at16 62 ; s ee al so Nw. Ecos y st em All ia nc e v . U. S. Fis h & W il dl ife Serv ., 47 5 F .3d11 36 , 11 42 –4 3 (9 th Cir . 20 07 ) (fi nd in g Ch ev ro n d efer en ce ap pl ie d t o t he Serv ic e’s po li cy st at em en ts crea te d a fte r publ ic no ti ce an d c omm en t). Und er Ch ev ro n t he Serv ic e’s in te rp ret at io n o f ho w itm ay m eas ur e im

pa ct on a sp eci es un de r th e End an ge redSp eci es Act i s s ub ject t o atwo -p ro ng ed an al y si s. Th e fi rs t que st io n i s wh ethe r “ Co ng res s h as di rect ly spo ke n t o t he pr eci se qu es ti on at i ss ue .” Ch ev ro n, 4 67 U.S. at 8 42 , 10 4 S . Ct. at27 81 . “ If the
31in te ntof C on gr es s i s cl ear, tha t i s the en d o f th e m at te r; f orth e co urt, as well as t he ag en cy , m

us t g iv e eff

ectto th e una m

bi gu ou sl y ex pr es se d i nt en t o f Co ng res s.” Id
. at84 2– 43 , 10 4 S . Ct. at27 81 ; s ee al so id . at 8 43 n.9 , 10 4 S . Ct. at27 82 n.9 (“ If a co urt, em pl oyin g t rad it io na l t oo ls of s ta tu to ry co ns tru ct io n, as cert ai ns th at Co ng res s h adanin te nt io n o n t he pre ci se qu es ti on at i ss ue , th atin te nt io n i s the la w.”). In C he vr onth e Supr em e Co urt g ran te d d efer en ce t o t he EPA’ s in te rp ret at io n o f th e te rm “ st at io na ry

so ur ce” i n t he Cle anAir Act . Id. at86 6, 1 04 S. Ct . at 2 79 3. Ho wev er, the Co urt d eferredon ly after f in di ng th atne it he r th e la ng ua ge of t he Cle anAir Actno r it s l eg is la ti ve hi st ory sh owe d c le ar co ng res si on al in te nton th e is su e. Id . at 8 61 –6 2, 1 04 S. Ct. at27 91 (“ W e are no t pe rs ua de d t ha t p ars in g o f th e g en eral term s i n t he tex t o f th e st atut e wil l re ve al an actua l i nt en t o f Co ng res s . . . . W e [al so ] fin d t ha t the leg is la ti ve hi st ory as awho le is si le nton th e p reci se is su e b efo re u s.”) ; s ee al so Gen. Dynam ic s Lan d S y s., In c. v. Cl in e, 54 0 U.S. 5 81 , 60 0, 1 24 S. Ct. 1 23 6, 1 24 8 (2 00 4) (no ti ng th atth e Co urt ne edno t ap pl y

an y lev el of d efer en ce b ecau se co ng res si on al in te nt , as s ho wn i n si gn ifi can t p artby leg is la ti ve hi st ory , was cl ear r eg ard in g t he m ean in g o f th e te rm

“ ag e” i n t he ADEA). Des pi te our co nc ern s ab ou t the us e o f le gi sl at iv e h is to ry m at eri al s, s ee s up ra pp . 15 –1 6, we re co gn iz e th atth is Co urt an d t he Supr em e Co urt h av e u se d the m to 32de ci de whet he r co ng res si on al in te ntis cle ar u nd er the fir stst ep of C he vr on . See

Gua r. Fin . Serv s., In c. v. Ryan, 9 28 F.2d99 4, 1 00 4 (1 1t h C ir. 1 99 1) (“ The refo re, in ord er t o d et erm in e whe th er Co ng res s h as ‘ di rect ly addres se d t he pre ci se qu es ti on at i ss ue ,’ we ha ve un de rta ke n a n a na lysis of t he av ai labl e le gi sl at iv e hi st ory . . . .” (ci ta ti on om it te d) ). In Ry an , we us eda Hou se Co m m it te e rep ort an d th e ap pe nd eddi ss en ti ng vi ews of c ert ai n c on gr es sm ento fin d c le ar co ng res si on al in te ntreg ard in g the st atut e b ei ng in te rp ret ed . Id.; see als o S ie rra C lub v . Jo hn so n, 43 6 F .3d12 69 , 12 80 (11 th Cir . 20 06 ) (u si ng bo thth e p la in lan gu ag e o f th e st atut e an d t he leg is la ti ve hi st ory ex pl ai ni ng itto de te rm in e co ng res si on al in te nt : “ If [the Cl ean Air Actam en dm en ts ] were n otot he rwis e cl ear, the co nf eren ce re po rt f

orth e 19 90 am en dm en ts set tl es it .”).

“ Whe n c on si de rin g t he leg is la ti ve hi st ory of e na ct edleg is la ti on , an au th or it at iv e so ur ce i s the off ic ia l co ng res si on al rep orts on th e b il l.” Ryan, 9 28 F.2 d a t 1 00 4; see als o S en eca- CayugaTrib e v . Nat’l In di anGam in g C omm ’n, 32 7 F.3 d 1 01 9, 1 03 3 n .19 (10 th Cir . 20 03 ) (“ Co m m it te e rep orts rep res en t the m os t pe rs ua si ve in di ci a o f Co ng res si on al in te nt , with t he ex cep ti on , of c ou rs e, of th e st atut e’s la ng ua ge .” (quo ti ng Mi ll s v . Uni te d S ta te s, 7 13 F.2d12 49 , 12 52 (7t h C ir. 19 83 )).

33Inth is cas e, th e le gi sl at iv e h is to ry of t he End an ge redSp eci es Act i nd ic at es th atCo ng res s d idha ve an“ in te nt io n o n the pre ci se qu es ti on at i ss ue .” Ch ev ro n, 46 7 U.S. at84 2– 43 , 84 3 n .9; 10 4 S . Ct. at27 81 –8 2 & n.9 . Con gr es s wan te d in ci de nt al tak e to be st at edinnu m be rs of a ni m al s wh ere p ract ic al , no t i n t erm s o f habi ta t m ark ers . Comm en ti ng on ho w in ci de nt al tak e st at em en ts were t o

“ [s ]peci f[y ] th e im

pa ct. . . on th e sp eci es ,” as requi redby 16 U.S.C. § 15 36 (b )(4 )(i ), th e Hou se Rep ort s ta te s: Sect io n 7 (b )(4 ) requi res th e Sec ret ary to sp eci fy th e im pa cton [si c] suc h in ci de nt al tak in g o n the sp eci es . The Co m m it te e d oe s n otin te ndth atth e Secr et ary wil l, i n e ve ry

in st an ce, i nt erp retth e wor d ‘im pa ct ’ to be a pr eci se nu m be r. Whe re p os si bl e, th e im pa ctsh ou ldbe sp eci fie d i n t erm s o f a nu m eri cal li m it at io n. . . . The Co m mit te e rec og ni zes , ho wev er, tha t i t m ay no t b e p os si bl e fo r th e Sec ret ary to sp eci fy a nu m be r in ev ery in st an ce. Fo r ex am pl e, itm ay

no t b e p os si bl e to de te rm in e th e num be r of eg gs of a n en da ng eredor t hr eat en edfis h wh ic h wi ll be su ck edin to a po wer p la ntwhen wate r is us edas aco ol in g m ech an is m . The Co m m it te e in te nd s o nl y

th at su chnu m be rs be est ab li sh edwher e p os si bl e. H.R. Rep . No. 9 7- 56 7, at27 (19 82 ), rep rin te d i n 1 98 2 U.S.C.C .A.N. 280 7, 2 82 7. Tha t p artof the Hou se Rep ort re cen tl y ledth e Nin th Cir cu itto in va li da te an in ci de nt al tak e st at em en t. See Or. Natu ral Res . Cou nc il v. Al le n, 4 76 F.3d10 31 , 10 37 (9t h C ir. 2 00 7) (“ Co ng res s h as cle arl y de cl areda pr efer en ce fo r ex pr es si ng ta ke innu m eri cal form , andanInc id en ta l Tak e St at em en t tha t u ti li zes a su rro ga te [m eas ur e] ins te adof anu m eri cal cap on tak e m us t ex pl ai n wh y

itwas
34im

pr act ic ab le to ex pr es s a n um eri cal m eas ur e o f ta ke .”). InAll en , th e co urt h el d th atth e Servi ce’s i nc id en ta l t ak e st at em en t, wh ic h u se d a crea ge of h ab it atlo ss in st eadof b irdco un ts to ex pr es s the tak e o f owl s, was in va li d i n p artbe cau se it fai le d t o e xp la in why co un ti ng th e o wls was i m pr act ic al . Id. at10 37 –3 8. Othe r cas es sh ow tha t t ak e is typic al ly exp res se d i n n um eri cal form , eve n wi th sp eci es th atwou ldsee m

to be as e lu si ve as t he bi rd s i n t hi s ca se . See, e.g ., Rice , 85 F.3d at54 0 n .8 (m en ti on in g a n i nc id en ta l t ak e st at em en t tha t al lo wedth e ta ke of f ift y two en da ng eredsn ak es , pl us two each en su in g year); Ariz . Cat tl e Gro wers Ass ’n v. U. S. Fi sh & W il dl ife Serv ., 27 3 F .3d12 29 , 12 49 (9t h C ir. 2 00 1) (li st in g c as es whe re the Serv ic e ex pr es se d i nc id en ta l t ak e in nu m eri cal form forwol ve s, re d squi rrel s, an d s ea turtl es ). Inli gh t o f th e Hou se Rep ort, wh ic h d is ti nc tl y st at es twi ce tha t n um eri cal po pu la ti on co un ts are t o b e u se d wh ere p os si bl e, th e Han db oo k’s co nt rary pos it io n fai ls th e fi rs t s te p o f Ch ev ro n a na lysis . W e ap pl y in st eadth e ru le th atsp eci fic po pu la ti on da tais requi redun le ss itis im pr act ic al . See All en , 47 6 F .3dat 10 37 –3 8. Th e ru le m ak es sen se . The g oa l o f th e End an ge redSp eci es Act i s t o pr ot ectpo pu la ti on s o f sp eci es , andus in g h ab it atm ark ers when po pu la ti on da tais av ai labl e is li ke turn in g o n t he weathe r ch an ne l t o s ee i f itis rai ni ng in st eadof lo ok in g o uta win do w. 35Inth is cas e, th e Servi ce’s cu rren t i nc id en ta l t ak e st at em en t ju st ifi es it s u se

of habi ta t m ark ers by exp la in in g t ha t the sp arro ws h av e “ se cret iv e” b eh av io r an d

“ crypti c” co lo r. As fo r th e woo d s to rk s an d k it es , th e Servi ce n ot es th atth ey are al so sec ret iv e an d m ov e o ve r ex pa ns iv e an d re m ot e are as . The rec or d, h owe ve r, sh ows th atsev eral Serv ic e-em pl oyed s ci en ti st s s pe nda gr eatde al of t im e actua ll y co un ti ng th es e p art ic ul ar b ird s an d c reat in g yearly po pu la ti on da taba se d o n t he ir effo rts . In fa ct , acco rd in g t o t he bi ol og ic al op in io n i ts el f, ki te s h av e b een co un te d on anan nu al ba si s s in ce 1 96 9, an d i n t he 19 90 s m an y of t he m were ra di o- ta gg ed
. Inli gh t o f th es e fac ts th e Servi ce’s as se rti on init s i nc id en ta l t ak e st at em en t tha t th e b ird s ar e “ di ffi cu ltto de te ct ” le av es us unpe rs ua de d t ha t co un ti ng th em is im pr act ic al en ou gh to jus ti fy th e u se of h ab it atm ark ers in st ead
. Mo reo ve r, ev enif t he Serv ic e is ab le to sh ow tha t u si ng sp eci fic bi rd po pu la ti on da tato m eas ur e in ci de nt al tak e an d s eta tr ig ge r fo r re-c on su lt at io n i s im pr act ic al , th e h ab it atm ark ers inth e cu rren t i nc id en ta l t ak e st at em en t ap pe ar t o be arb it rary andcap ric io us . For i ns ta nc e, th e so le tri gg er fo r th e k it e is a wate r le ve l dro p o f m or e th an1.7 feetat g au ge 3A-2 8 b etweenFeb ru ary an d M ay of each y ear. Al th ou gh th e b io lo gi cal op in io n re co gn iz es th atwate r le ve ls ab ov e 10 .5 fe etare a s ig ni fic an t p ro bl em forth e k it e g iv enit s s cav en gi ng an d n es ti ng habi ts , th ere i s n o t rig ge r in term s o f a h ig h- wate r m ark . Ins te ad , witho ut
36ex pl an at io n t he Serv ic e actua ll y rem ov edfro m

th e 2 00 6 i nc id en ta l t ak e st at em en t a h ig h- wate r tr ig ge r th atitha d i nc lu de d i n i ts 20 02 st at em en t. As t he Trib e p oi nt s ou t, thi s m ean s tha t n o a m ou ntof h ig h wat er i n WCA-3A—an d n o n um be r of de ador v an is he d k it es —wi ll tri gg er re -co ns ul ta ti on . Reg ard le ss of wh atbe fal ls th e k it es inth e m ean ti m e, th e Servi ce wi ll no t re co ns id er i ts Int eri m Pla n u nl es s wate r le ve ls dro p m or e th an1.7 feetat asp eci fic m ark er dur in g ath ree- m on th pe rio d e ach sp rin g. In th atres pe ctth e in ci de nt al tak e st at em en t i s d efec ti ve . W e d o uph ol d t he Fis h & W il dl ife Serv ic e’s co nc lu si on th atth e k it e wil l n ot be jeop ard iz edby its sp arro w-sa vi ng Int eri m Pla n. Th e law, ho wev er, requi res m or e. It re qu ire s tha t the in ci de nt al tak e st at em en t co nt ai n a n a de qu at e tr ig ge r fo r re-c on su lt at io n a ndth atth e tr ig ge r be expr es se d i n p op ul at io n t erm s u nl es s i t i s im pr act ic al to do so . Becau se th os e requi rem en ts are n otm et , th e cu rren t in ci de nt al tak e st at em en t m us t b e m od ifi edor r ep la ced
. W e v acat e th e d is tri ctco urt’s jud gm en t t o t he ex te ntth atitup ho ld s the in ci de nt al tak e st at em en t, b utwe affi rm th e jud gm en t i n a ll ot he r res pe ct s, an d we rem an d fo r fu rth er p ro ceed in gs co ns is te ntwith thi s o pi ni on . AFFIRMED I N PART, and REVE RSED a nd REMANDED I N PART.

37