NATIONAL BALD EAGLE 

MANAGEMENT GUIDELINES 

U.S. Fish and Wildlife Service

May 2007 
 

TABLE OF CONTENTS 

INTRODUCTION...........................................................................................................1 

LEGAL PROTECTIONS FOR THE BALD EAGLE ...................................................... 2 

The Bald and Golden Eagle Protection Act...........................................................2 

The Migratory Bird Treaty Act ................................................................................3 

State laws and regulations .....................................................................................3 

Where do bald eagles nest? ...................................................................................4 

When do bald eagles nest? ....................................................................................5 

Chronology of typical reproductive activities of bald eagles in the United 

States........................................................................................................................6

How many chicks do bald eagles raise? ...............................................................7 

What do bald eagles eat? .......................................................................................7 

The impact of human activity on nesting bald eagles..........................................7 

The impact of human activity on foraging and roosting bald eagles .................8 

RECOMMENDATIONS FOR AVOIDING DISTURBANCE AT NEST SITES...............9 

Existing Uses.........................................................................................................10 

Alternate nests.......................................................................................................11 

Temporary Impacts ...............................................................................................11 

RECOMMENDATIONS FOR AVOIDING DISTURBANCE AT FORAGING AREAS 

AND COMMUNAL ROOST SITES............................................................................. 14 

ADDITIONAL RECOMMENDATIONS TO BENEFIT BALD EAGLES....................... 15 

CONTACTS ................................................................................................................ 16 

GLOSSARY................................................................................................................ 17 

RELATED LITERATURE ........................................................................................... 19
 National Bald Eagle Management Guidelines May 2007 

 1 

INTRODUCTION

The bald eagle (Haliaeetus leucocephalus) is protected by the Bald and Golden Eagle 

Protection Act (Eagle Act) and the Migratory Bird Treaty Act (MBTA). The MBTA and the 

Eagle Act protect bald eagles from a variety of harmful actions and impacts. The U.S. 

Fish and Wildlife Service (Service) developed these National Bald Eagle Management 

Guidelines to advise landowners, land managers, and others who share public and private 

lands with bald eagles when and under what circumstances the protective provisions of 

the Eagle Act may apply to their activities. A variety of human activities can potentially 

interfere with bald eagles, affecting their ability to forage, nest, roost, breed, or raise 

young. The Guidelines are intended to help people minimize such impacts to bald eagles, 

particularly where they may constitute “disturbance,” which is prohibited by the Eagle Act. 

The Guidelines are intended to: 

(1) Publicize the provisions of the Eagle Act that continue to protect bald eagles, in 

order to reduce the possibility that people will violate the law, 

(2) Advise landowners, land managers and the general public of the potential for 

various human activities to disturb bald eagles, and 

(3) Encourage additional nonbinding land management practices that benefit bald 

eagles (see Additional Recommendations section). 

While the Guidelines include general recommendations for land management practices 

that will benefit bald eagles, the document is intended primarily as a tool for landowners 

and planners who seek information and recommendations regarding how to avoid 

disturbing bald eagles. Many States and some tribal entities have developed statespecific management plans, regulations, and/or guidance for landowners and land 

managers to protect and enhance bald eagle habitat, and we encourage the continued 

development and use of these planning tools to benefit bald eagles. 

Adherence to the Guidelines herein will benefit individuals, agencies, organizations, and 

companies by helping them avoid violations of the law. However, the Guidelines 

themselves are not law. Rather, they are recommendations based on several decades of 

behavioral observations, science, and conservation measures to avoid or minimize 

adverse impacts to bald eagles. 

The U.S. Fish and Wildlife Service strongly encourages adherence to these guidelines to 

ensure that bald and golden eagle populations will continue to be sustained. The Service 

realizes there may be impacts to some birds even if all reasonable measures are taken to 

avoid such impacts. Although it is not possible to absolve individuals and entities from 

liability under the Eagle Act or the MBTA, the Service exercises enforcement discretion to 

focus on those individuals, companies, or agencies that take migratory birds without 

regard for the consequences of their actions and the law, especially when conservation 

measures, such as these Guidelines, are available, but have not been implemented. The 

Service will prioritize its enforcement efforts to focus on those individuals or entities who 

take bald eagles or their parts, eggs, or nests without implementing appropriate measures 

recommended by the Guidelines. 
 National Bald Eagle Management Guidelines May 2007 

 2 

The Service intends to pursue the development of regulations that would authorize, under 

limited circumstances, the use of permits if “take” of an eagle is anticipated but 

unavoidable. Additionally, if the bald eagle is delisted, the Service intends to provide a 

regulatory mechanism to honor existing (take) authorizations under the Endangered 

Species Act (ESA). 

During the interim period until the Service completes a rulemaking for permits under the 

Eagle Act, the Service does not intend to refer for prosecution the incidental “take” of any 

bald eagle under the MBTA or Eagle Act, if such take is in full compliance with the terms 

and conditions of an incidental take statement issued to the action agency or applicant 

under the authority of section 7(b)(4) of the ESA or a permit issued under the authority of 

section 10(a)(1)(B) of the ESA. 

The Guidelines are applicable throughout the United States, including Alaska. The 

primary purpose of these Guidelines is to provide information that will minimize or prevent 

violations only of Federal laws governing bald eagles. In addition to Federal laws, many 

states and some smaller jurisdictions and tribes have additional laws and regulations 

protecting bald eagles. In some cases those laws and regulations may be more protective 

(restrictive) than these Federal guidelines. If you are planning activities that may affect 

bald eagles, we therefore recommend that you contact both your nearest U.S. Fish and 

Wildlife Service Field Office (see the contact information on p.16) and your state wildlife 

agency for assistance. 

 LEGAL PROTECTIONS FOR THE BALD EAGLE

The Bald and Golden Eagle Protection Act

The Eagle Act (16 U.S.C. 668-668c), enacted in 1940, and amended several times since 

then, prohibits anyone, without a permit issued by the Secretary of the Interior, from 

Ataking@ bald eagles, including their parts, nests, or eggs. The Act provides criminal and 

civil penalties for persons who Atake, possess, sell, purchase, barter, offer to sell, 

purchase or barter, transport, export or import, at any time or any manner, any bald eagle 

... [or any golden eagle], alive or dead, or any part, nest, or egg thereof.@ The Act defines 

Atake@ as Apursue, shoot, shoot at, poison, wound, kill, capture, trap, collect, molest or 

disturb.@ “Disturb@ means: 

"Disturb means to agitate or bother a bald or golden eagle to a degree that 

causes, or is likely to cause, based on the best scientific information available, 

1) injury to an eagle, 2) a decrease in its productivity, by substantially interfering 

with normal breeding, feeding, or sheltering behavior, or 3) nest abandonment, 

by substantially interfering with normal breeding, feeding, or sheltering behavior." 

In addition to immediate impacts, this definition also covers impacts that result from 

human-induced alterations initiated around a previously used nest site during a time when 

eagles are not present, if, upon the eagle=s return, such alterations agitate or bother an 

eagle to a degree that injures an eagle or substantially interferes with normal breeding, 

feeding, or sheltering habits and causes, or is likely to cause, a loss of productivity or nest 

abandonment. 
 National Bald Eagle Management Guidelines May 2007 

 3 

A violation of the Act can result in a criminal fine of $100,000 ($200,000 for organizations), 

imprisonment for one year, or both, for a first offense. Penalties increase substantially for 

additional offenses, and a second violation of this Act is a felony. 

The Migratory Bird Treaty Act

The MBTA (16 U.S.C. 703-712), prohibits the taking of any migratory bird or any part, 

nest, or egg, except as permitted by regulation. The MBTA was enacted in 1918; a 1972 

agreement supplementing one of the bilateral treaties underlying the MBTA had the effect 

of expanding the scope of the Act to cover bald eagles and other raptors. Implementing 

regulations define “take” under the MBTA as “pursue, hunt, shoot, wound, kill, trap, 

capture, possess, or collect.” 

Copies of the Eagle Act and the MBTA are available at: http://permits.fws.gov/ltr/ltr.shtml.

State laws and regulations

Most states have their own regulations and/or guidelines for bald eagle management. 

Some states may continue to list the bald eagle as endangered, threatened, or of special 

concern. If you plan activities that may affect bald eagles, we urge you to familiarize 

yourself with the regulations and/or guidelines that apply to bald eagles in your state. 

Your adherence to the Guidelines herein does not ensure that you are in compliance with 

state laws and regulations because state regulations can be more specific and/or 

restrictive than these Guidelines. 

NATURAL HISTORY OF THE BALD EAGLE

Bald eagles are a North American species that historically occurred throughout the 

contiguous United States and Alaska. After severely declining in the lower 48 States 

between the 1870s and the 1970s, bald eagles have rebounded and re-established 

breeding territories in each of the lower 48 states. The largest North American breeding 

populations are in Alaska and Canada, but there are also significant bald eagle 

populations in Florida, the Pacific Northwest, the Greater Yellowstone area, the Great 

Lakes states, and the Chesapeake Bay region. Bald eagle distribution varies seasonally. 

Bald eagles that nest in southern latitudes frequently move northward in late spring and 

early summer, often summering as far north as Canada. Most eagles that breed at 

northern latitudes migrate southward during winter, or to coastal areas where waters 

remain unfrozen. Migrants frequently concentrate in large numbers at sites where food is 

abundant and they often roost together communally. In some cases, concentration areas 

are used year-round: in summer by southern eagles and in winter by northern eagles. 

Juvenile bald eagles have mottled brown and white plumage, gradually acquiring their 

dark brown body and distinctive white head and tail as they mature. Bald eagles generally 

attain adult plumage by 5 years of age. Most are capable of breeding at 4 or 5 years of 

age, but in healthy populations they may not start breeding until much older. Bald eagles 

may live 15 to 25 years in the wild. Adults weigh 8 to 14 pounds (occasionally reaching 

16 pounds in Alaska) and have wingspans of 5 to 8 feet. Those in the northern range are 

larger than those in the south, and females are larger than males. 
 National Bald Eagle Management Guidelines May 2007 

 4 

Where do bald eagles nest?

Breeding bald eagles occupy “territories,” areas they will typically defend against intrusion 

by other eagles. In addition to the active nest, a territory may include one or more 

alternate nests (nests built or maintained by the eagles but not used for nesting in a given 

year). The Eagle Act prohibits removal or destruction of both active and alternate bald 

eagle nests. Bald eagles exhibit high nest site fidelity and nesting territories are often 

used year after year. Some territories are known to have been used continually for over 

half a century. 

Bald eagles generally nest near coastlines, rivers, large lakes or streams that support an 

adequate food supply. They often nest in mature or old-growth trees; snags (dead trees); 

cliffs; rock promontories; rarely on the ground; and with increasing frequency on humanmade structures such as power poles and communication towers. In forested areas, bald 

eagles often select the tallest trees with limbs strong enough to support a nest that can 

weigh more than 1,000 pounds. Nest sites typically include at least one perch with a clear 

view of the water where the eagles usually forage. Shoreline trees or snags located in 

reservoirs provide the visibility and accessibility needed to locate aquatic prey. Eagle 

nests are constructed with large sticks, and may be lined with moss, grass, plant stalks, 

lichens, seaweed, or sod. Nests are usually about 4-6 feet in diameter and 3 feet deep, 

although larger nests exist. 

 Copyright Birds of North America, 2000

The range of breeding bald eagles in 2000 (shaded areas). This map shows only the larger 

concentrations of nests; eagles have continued to expand into additional nesting territories in many 

states. The dotted line represents the bald eagle’s wintering range. 
 National Bald Eagle Management Guidelines May 2007 

 5 

When do bald eagles nest?

Nesting activity begins several months before egg-laying. Egg-laying dates vary 

throughout the U.S., ranging from October in Florida, to late April or even early May in the 

northern United States. Incubation typically lasts 33-35 days, but can be as long as 40 

days. Eaglets make their first unsteady flights about 10 to 12 weeks after hatching, and 

fledge (leave their nests) within a few days after that first flight. However, young birds 

usually remain in the vicinity of the nest for several weeks after fledging because they are 

almost completely dependent on their parents for food until they disperse from the nesting 

territory approximately 6 weeks later. 

The bald eagle breeding season tends to be longer in the southern U.S., and re-nesting 

following an unsuccessful first nesting attempt is more common there as well. The 

following table shows the timing of bald eagle breeding seasons in different regions of the 

country. The table represents the range of time within which the majority of nesting 

activities occur in each region and does not apply to any specific nesting pair. Because 

the timing of nesting activities may vary within a given region, you should contact the 

nearest U.S. Fish and Wildlife Service Field Office (see page 16) and/or your state wildlife 

conservation agency for more specific information on nesting chronology in your area. 
 National Bald Eagle Management Guidelines May 2007 

 6 

Chronology of typical reproductive activities of bald eagles in the United States. 

 

Sept. Oct. Nov. Dec. Jan. Feb. March April May June July Aug. 

SOUTHEASTERN U.S. (FL, GA, SC, NC, AL, MS, LA, TN, KY, AR, eastern 2 of TX)

Nest Building ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟

Egg Laying/Incubation ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟

Hatching/Rearing Young ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟

Fledging Young ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟ ⎟

CHESAPEAKE BAY REGION (NC, VA, MD, DE, southern 2 of NJ, eastern 2 of PA, panhandle of WV)

Nest Building ⎟ ⎟

Egg Laying/Incubation ⎟ ⎟ ⎟ ⎟ ⎟ ⎟

Hatching/Rearing Young ⎟ ⎟ ⎟ ⎟ ⎟

Fledging Young 

NORTHERN U.S. (ME, NH, MA, RI, CT, NY, northern 2 of NJ, western 2 of PA, OH, WV exc. panhandle, IN, IL, 

MI, WI, MN, IA, MO, ND, SD, NB, KS, CO, UT)

Nest Building ⎟ ⎟

Egg Laying/Incubation ⎟ ⎟

Hatching/Rearing Young ⎟ ⎟

Fledging Young ⎟ ⎟ ⎟ ⎟

PACIFIC REGION (WA, OR, CA, ID, MT, WY, NV)

Nest Building ⎟ ⎟

Egg Laying/Incubation ⎟ ⎟

Hatching/Rearing Young ⎟ ⎟

Fledging Young ⎟ ⎟ ⎟ ⎟

SOUTHWESTERN U.S. (AZ, NM, OK panhandle, western 2 of TX) 

Nest Building ⎟ ⎟⎟ ⎟⎟ ⎟

Egg Laying/Incubation ⎟ ⎟ ⎟ ⎟⎟

⎟⎟

Hatching/Rearing Young ⎟ ⎟ ⎟

⎟⎟ ⎟⎟ ⎟ ⎟

Fledging Young ⎟

ALASKA 

Nest Building ⎟ ⎟⎟ ⎟⎟ ⎟ ⎟

Egg Laying/Incubation 

⎟ Hatching/Rearing Young ⎟ ⎟ ⎟ ⎟⎟

Ing Young FledgSept. Oct. Nov. Dec. Jan. Feb. March April May June July Aug. 
 National Bald Eagle Management Guidelines May 2007 

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How many chicks do bald eagles raise?

The number of eagle eggs laid will vary from 1-3, with 1-2 eggs being the most common. 

Only one eagle egg is laid per day, although not always on successive days. Hatching of 

young occurs on different days with the result that chicks in the same nest are sometimes 

of unequal size. The overall national fledging rate is approximately one chick per nest, 

annually, which results in a healthy expanding population. 

What do bald eagles eat?

Bald eagles are opportunistic feeders. Fish comprise much of their diet, but they also eat 

waterfowl, shorebirds/colonial waterbirds, small mammals, turtles, and carrion. Because 

they are visual hunters, eagles typically locate their prey from a conspicuous perch, or 

soaring flight, then swoop down and strike. Wintering bald eagles often congregate in 

large numbers along streams to feed on spawning salmon or other fish species, and often 

gather in large numbers in areas below reservoirs, especially hydropower dams, where 

fish are abundant. Wintering eagles also take birds from rafts of ducks at reservoirs and 

rivers, and congregate on melting ice shelves to scavenge dead fish from the current or 

the soft melting ice. Bald eagles will also feed on carcasses along roads, in landfills, and 

at feedlots. 

During the breeding season, adults carry prey to the nest to feed the young. Adults feed 

their chicks by tearing off pieces of food and holding them to the beaks of the eaglets. 

After fledging, immature eagles are slow to develop hunting skills, and must learn to 

locate reliable food sources and master feeding techniques. Young eagles will 

congregate together, often feeding upon easily acquired food such as carrion and fish 

found in abundance at the mouths of streams and shallow bays and at landfills. 

The impact of human activity on nesting bald eagles

During the breeding season, bald eagles are sensitive to a variety of human activities. 

However, not all bald eagle pairs react to human activities in the same way. Some pairs 

nest successfully just dozens of yards from human activity, while others abandon nest 

sites in response to activities much farther away. This variability may be related to a 

number of factors, including visibility, duration, noise levels, extent of the area affected by 

the activity, prior experiences with humans, and tolerance of the individual nesting pair. 

The relative sensitivity of bald eagles during various stages of the breeding season is 

outlined in the following table. 
 National Bald Eagle Management Guidelines May 2007 

 8 

Nesting Bald Eagle Sensitivity to Human Activities 

Phase Activity 

Sensitivity to 

Human Activity Comments 

I Courtship and 

Nest Building 

Most sensitive 

period; likely to 

respond negatively 

Most critical time period. Disturbance is manifested in nest 

abandonment. Bald eagles in newly established territories are 

more prone to abandon nest sites. 

II Egg laying Very sensitive 

period 

Human activity of even limited duration may cause nest 

desertion and abandonment of territory for the breeding 

season. 

III 

Incubation and 

early nestling 

period (up to 4 

weeks) 

Very sensitive 

period 

Adults are less likely to abandon the nest near and after 

hatching. However, flushed adults leave eggs and young 

unattended; eggs are susceptible to cooling, loss of moisture, 

overheating, and predation; young are vulnerable to elements. 

IV Nestling 

period, 4 to 8 

weeks 

Moderately 

sensitive period 

Likelihood of nest abandonment and vulnerability of the 

nestlings to elements somewhat decreases. However, 

nestlings may miss feedings, affecting their survival. 

V 

Nestlings 8 

weeks through

fledging

Very sensitive 

period 

Gaining flight capability, nestlings 8 weeks and older may flush 

from the nest prematurely due to disruption and die. 

If agitated by human activities, eagles may inadequately construct or repair their nest, 

may expend energy defending the nest rather than tending to their young, or may 

abandon the nest altogether. Activities that cause prolonged absences of adults from 

their nests can jeopardize eggs or young. Depending on weather conditions, eggs may 

overheat or cool too much and fail to hatch. Unattended eggs and nestlings are subject to 

predation. Young nestlings are particularly vulnerable because they rely on their parents 

to provide warmth or shade, without which they may die as a result of hypothermia or heat 

stress. If food delivery schedules are interrupted, the young may not develop healthy 

plumage, which can affect their survival. In addition, adults startled while incubating or 

brooding young may damage eggs or injure their young as they abruptly leave the nest. 

Older nestlings no longer require constant attention from the adults, but they may be 

startled by loud or intrusive human activities and prematurely jump from the nest before 

they are able to fly or care for themselves. Once fledged, juveniles range up to 1⁄4 mile 

from the nest site, often to a site with minimal human activity. During this period, until 

about six weeks after departure from the nest, the juveniles still depend on the adults to 

feed them. 

The impact of human activity on foraging and roosting bald eagles

Disruption, destruction, or obstruction of roosting and foraging areas can also negatively 

affect bald eagles. Disruptive activities in or near eagle foraging areas can interfere with 

feeding, reducing chances of survival. Interference with feeding can also result in reduced 

productivity (number of young successfully fledged). Migrating and wintering bald eagles 

often congregate at specific sites for purposes of feeding and sheltering. Bald eagles rely 

on established roost sites because of their proximity to sufficient food sources. Roost 

sites are usually in mature trees where the eagles are somewhat sheltered from the wind 

and weather. Human activities near or within communal roost sites may prevent eagles 
 National Bald Eagle Management Guidelines May 2007 

 9 

from feeding or taking shelter, especially if there are not other undisturbed and productive 

feeding and roosting sites available. Activities that permanently alter communal roost 

sites and important foraging areas can altogether eliminate the elements that are essential 

for feeding and sheltering eagles. 

Where a human activity agitates or bothers roosting or foraging bald eagles to the degree 

that causes injury or substantially interferes with breeding, feeding, or sheltering behavior 

and causes, or is likely to cause, a loss of productivity or nest abandonment, the conduct 

of the activity constitutes a violation of the Eagle Act’s prohibition against disturbing 

eagles. The circumstances that might result in such an outcome are difficult to predict 

without detailed site-specific information. If your activities may disturb roosting or foraging 

bald eagles, you should contact your local Fish and Wildlife Service Field Office (see page 

16) for advice and recommendations for how to avoid such disturbance. 

RECOMMENDATIONS FOR AVOIDING DISTURBANCE AT NEST SITES 

In developing these Guidelines, we relied on existing state and regional bald eagle 

guidelines, scientific literature on bald eagle disturbance, and recommendations of state 

and Federal biologists who monitor the impacts of human activity on eagles. Despite 

these resources, uncertainties remain regarding the effects of many activities on eagles 

and how eagles in different situations may or may not respond to certain human activities. 

The Service recognizes this uncertainty and views the collection of better biological data 

on the response of eagles to disturbance as a high priority. To the extent that resources 

allow, the Service will continue to collect data on responses of bald eagles to human 

activities conducted according to the recommendations within these Guidelines to ensure 

that adequate protection from disturbance is being afforded, and to identify circumstances 

where the Guidelines might be modified. These data will be used to make future 

adjustments to the Guidelines. 

To avoid disturbing nesting bald eagles, we recommend (1) keeping a distance between 

the activity and the nest (distance buffers), (2) maintaining preferably forested (or natural) 

areas between the activity and around nest trees (landscape buffers), and (3) avoiding 

certain activities during the breeding season. The buffer areas serve to minimize visual 

and auditory impacts associated with human activities near nest sites. Ideally, buffers 

would be large enough to protect existing nest trees and provide for alternative or 

replacement nest trees. 

The size and shape of effective buffers vary depending on the topography and other 

ecological characteristics surrounding the nest site. In open areas where there are little or 

no forested or topographical buffers, such as in many western states, distance alone must 

serve as the buffer. Consequently, in open areas, the distance between the activity and 

the nest may need to be larger than the distances recommended under Categories A and 

B of these guidelines (pg. 12) if no landscape buffers are present. The height of the nest 

above the ground may also ameliorate effects of human activities; eagles at higher nests 

may be less prone to disturbance. 

In addition to the physical features of the landscape and nest site, the appropriate size for 

the distance buffer may vary according to the historical tolerances of eagles to human 

activities in particular localities, and may also depend on the location of the nest in relation 
 National Bald Eagle Management Guidelines May 2007 

 10 

to feeding and roosting areas used by the eagles. Increased competition for nest sites 

may lead bald eagles to nest closer to human activity (and other eagles). 

Seasonal restrictions can prevent the potential impacts of many shorter-term, obtrusive 

activities that do not entail landscape alterations (e.g. fireworks, outdoor concerts). In 

proximity to the nest, these kinds of activities should be conducted only outside the 

breeding season. For activities that entail both short-term, obtrusive characteristics and 

more permanent impacts (e.g., building construction), we recommend a combination of 

both approaches: retaining a landscape buffer and observing seasonal restrictions. 

 

For assistance in determining the appropriate size and configuration of buffers or the 

timing of activities in the vicinity of a bald eagle nest, we encourage you to contact the 

nearest U.S. Fish and Wildlife Service Field Office (see page 16). 

Existing Uses

Eagles are unlikely to be disturbed by routine use of roads, homes, and other facilities 

where such use pre-dates the eagles’ successful nesting activity in a given area. 

Therefore, in most cases ongoing existing uses may proceed with the same intensity with 

little risk of disturbing bald eagles. However, some intermittent, occasional, or irregular 

uses that pre-date eagle nesting in an area may disturb bald eagles. For example: a pair 

of eagles may begin nesting in an area and subsequently be disturbed by activities 

associated with an annual outdoor flea market, even though the flea market has been held 

annually at the same location. In such situations, human activity should be adjusted or 

relocated to minimize potential impacts on the nesting pair. 

ACTIVITY-SPECIFIC GUIDELINES 

The following section provides the Service=s management recommendations for avoiding 

bald eagle disturbance as a result of new or intermittent activities proposed in the vicinity 

of bald eagle nests. Activities are separated into 8 categories (A – H) based on the nature 

and magnitude of impacts to bald eagles that usually result from the type of activity. 

Activities with similar or comparable impacts are grouped together. 

In most cases, impacts will vary based on the visibility of the activity from the eagle nest 

and the degree to which similar activities are already occurring in proximity to the nest 

site. Visibility is a factor because, in general, eagles are more prone to disturbance when 

an activity occurs in full view. For this reason, we recommend that people locate activities 

farther from the nest structure in areas with open vistas, in contrast to areas where the 

view is shielded by rolling topography, trees, or other screening factors. The 

recommendations also take into account the existence of similar activities in the area 

because the continued presence of nesting bald eagles in the vicinity of the existing 

activities indicates that the eagles in that area can tolerate a greater degree of human 

activity than we can generally expect from eagles in areas that experience fewer human 

impacts. To illustrate how these factors affect the likelihood of disturbing eagles, we have 

incorporated the recommendations for some activities into a table (categories A and B). 

First, determine which category your activity falls into (between categories A – H). If the 

activity you plan to undertake is not specifically addressed in these guidelines, follow the 

recommendations for the most similar activity represented. 
 National Bald Eagle Management Guidelines May 2007 

 11 

If your activity is under A or B, our recommendations are in table form. The vertical axis 

shows the degree of visibility of the activity from the nest. The horizontal axis (header 

row) represents the degree to which similar activities are ongoing in the vicinity of the 

nest. Locate the row that best describes how visible your activity will be from the eagle 

nest. Then, choose the column that best describes the degree to which similar activities 

are ongoing in the vicinity of the eagle nest. The box where the column and row come 

together contains our management recommendations for how far you should locate your 

activity from the nest to avoid disturbing the eagles. The numerical distances shown in 

the tables are the closest the activity should be conducted relative to the nest. In some 

cases we have included additional recommendations (other than recommended distance

from the nest) you should follow to help ensure that your activity will not disturb the 

eagles. 

Alternate nests 

For activities that entail permanent landscape alterations that may result in bald eagle 

disturbance, these recommendations apply to both active and alternate bald eagle nests. 

Disturbance becomes an issue with regard to alternate nests if eagles return for breeding 

purposes and react to land use changes that occurred while the nest was inactive. The 

likelihood that an alternate nest will again become active decreases the longer it goes 

unused. If you plan activities in the vicinity of an alternate bald eagle nest and have 

information to show that the nest has not been active during the preceding 5 breeding 

seasons, the recommendations provided in these guidelines for avoiding disturbance 

around the nest site may no longer be warranted. The nest itself remains protected by 

other provisions of the Eagle Act, however, and may not be destroyed. 

If special circumstances exist that make it unlikely an inactive nest will be reused before 5 

years of disuse have passed, and you believe that the probability of reuse is low enough 

to warrant disregarding the recommendations for avoiding disturbance, you should be 

prepared to provide all the reasons for your conclusion, including information regarding 

past use of the nest site. Without sufficient documentation, you should continue to follow 

these guidelines when conducting activities around the nest site. If we are able to 

determine that it is unlikely the nest will be reused, we may advise you that the 

recommendations provided in these guidelines for avoiding disturbance are no longer 

necessary around that nest site. 

This guidance is intended to minimize disturbance, as defined by Federal regulation. In 

addition to Federal laws, most states and some tribes and smaller jurisdictions have 

additional laws and regulations protecting bald eagles. In some cases those laws and 

regulations may be more protective (restrictive) than these Federal guidelines. 

Temporary Impacts 

For activities that have temporary impacts, such as the use of loud machinery, fireworks 

displays, or summer boating activities, we recommend seasonal restrictions. These types 

of activities can generally be carried out outside of the breeding season without causing 

disturbance. The recommended restrictions for these types of activities can be lifted for 

alternate nests within a particular territory, including nests that were attended during the 

current breeding season but not used to raise young, after eggs laid in another nest within 

the territory have hatched (depending on the distance between the alternate nest and the 

active nest). 
 National Bald Eagle Management Guidelines May 2007 

 12 

In general, activities should be kept as far away from nest trees as possible; loud and 

disruptive activities should be conducted when eagles are not nesting; and activity 

between the nest and the nearest foraging area should be minimized. If the activity you 

plan to undertake is not specifically addressed in these guidelines, follow the 

recommendations for the most similar activity addressed, or contact your local U.S. Fish 

and Wildlife Service Field Office for additional guidance. 

If you believe that special circumstances apply to your situation that increase or diminish 

the likelihood of bald eagle disturbance, or if it is not possible to adhere to the guidelines, 

you should contact your local Service Field Office for further guidance. 

Category A: 

Building construction, 1 or 2 story, with project footprint of 1⁄2 acre or less. 

Construction of roads, trails, canals, power lines, and other linear utilities. 

Agriculture and aquaculture – new or expanded operations. 

Alteration of shorelines or wetlands. 

Installation of docks or moorings. 

Water impoundment. 

Category B: 

Building construction, 3 or more stories. 

Building construction, 1 or 2 story, with project footprint of more than 1⁄2 acre. 

Installation or expansion of marinas with a capacity of 6 or more boats. 

Mining and associated activities. 

Oil and natural gas drilling and refining and associated activities. 

If there is no similar activity 

within 1 mile of the nest 

If there is similar activity closer 

than 1 mile from the nest 

If the activity 

will be visible 

from the nest 

660 feet. Landscape buffers are 

recommended. 

660 feet, or as close as existing 

tolerated activity of similar scope. 

Landscape buffers are 

recommended. 

If the activity 

will not be 

visible from the 

nest 

Category A: 

330 feet. Clearing, external 

construction, and landscaping 

between 330 feet and 660 feet 

should be done outside breeding 

season. 

Category B: 

660 feet. 

330 feet, or as close as existing 

tolerated activity of similar scope. 

Clearing, external construction and 

landscaping within 660 feet should 

be done outside breeding season. 

The numerical distances shown in the table are the closest the activity should be conducted relative to 

the nest. 
 National Bald Eagle Management Guidelines May 2007 

 13 

 Category C. Timber Operations and Forestry Practices 

• Avoid clear cutting or removal of overstory trees within 330 feet of the nest at any 

time. 

• Avoid timber harvesting operations, including road construction and chain saw and 

yarding operations, during the breeding season within 660 feet of the nest. The 

distance may be decreased to 330 feet around alternate nests within a particular 

territory, including nests that were attended during the current breeding season but 

not used to raise young, after eggs laid in another nest within the territory have 

hatched. 

• Selective thinning and other silviculture management practices designed to 

conserve or enhance habitat, including prescribed burning close to the nest tree, 

should be undertaken outside the breeding season. Precautions such as raking 

leaves and woody debris from around the nest tree should be taken to prevent 

crown fire or fire climbing the nest tree. If it is determined that a burn during the 

breeding season would be beneficial, then, to ensure that no take or disturbance 

will occur, these activities should be conducted only when neither adult eagles nor 

young are present at the nest tree (i.e., at the beginning of, or end of, the breeding 

season, either before the particular nest is active or after the young have fledged 

from that nest). Appropriate Federal and state biologists should be consulted 

before any prescribed burning is conducted during the breeding season. 

• Avoid construction of log transfer facilities and in-water log storage areas within 

330 feet of the nest. 

Category D. Off-road vehicle use (including snowmobiles). No buffer is necessary 

around nest sites outside the breeding season. During the breeding season, do not 

operate off-road vehicles within 330 feet of the nest. In open areas, where there is 

increased visibility and exposure to noise, this distance should be extended to 660 feet. 

Category E. Motorized Watercraft use (including jet skis/personal watercraft). No 

buffer is necessary around nest sites outside the breeding season. During the breeding 

season, within 330 feet of the nest, (1) do not operate jet skis (personal watercraft), and 

(2) avoid concentrations of noisy vessels (e.g., commercial fishing boats and tour boats), 

except where eagles have demonstrated tolerance for such activity. Other motorized boat 

traffic passing within 330 feet of the nest should attempt to minimize trips and avoid 

stopping in the area where feasible, particularly where eagles are unaccustomed to boat 

traffic. Buffers for airboats should be larger than 330 feet due to the increased noise they 

generate, combined with their speed, maneuverability, and visibility. 

 

Category F. Non-motorized recreation and human entry (e.g., hiking, camping, 

fishing, hunting, birdwatching, kayaking, canoeing). No buffer is necessary around nest 

sites outside the breeding season. If the activity will be visible or highly audible from the 

nest, maintain a 330-foot buffer during the breeding season, particularly where eagles are 

unaccustomed to such activity. 
 National Bald Eagle Management Guidelines May 2007 

 14 

 

Category G. Helicopters and fixed-wing aircraft. 

Except for authorized biologists trained in survey techniques, avoid operating aircraft 

within 1,000 feet of the nest during the breeding season, except where eagles have 

demonstrated tolerance for such activity. 

Category H. Blasting and other loud, intermittent noises. 

Avoid blasting and other activities that produce extremely loud noises within 1/2 mile of 

active nests, unless greater tolerance to the activity (or similar activity) has been 

demonstrated by the eagles in the nesting area. This recommendation applies to the use 

of fireworks classified by the Federal Department of Transportation as Class B explosives, 

which includes the larger fireworks that are intended for licensed public display. 

RECOMMENDATIONS FOR AVOIDING DISTURBANCE AT FORAGING AREAS AND 

COMMUNAL ROOST SITES 

1. Minimize potentially disruptive activities and development in the eagles’ direct 

flight path between their nest and roost sites and important foraging areas. 

2. Locate long-term and permanent water-dependent facilities, such as boat 

ramps and marinas, away from important eagle foraging areas. 

3. Avoid recreational and commercial boating and fishing near critical eagle 

foraging areas during peak feeding times (usually early to mid-morning and 

late afternoon), except where eagles have demonstrated tolerance to such 

activity. 

4. Do not use explosives within 1⁄2 mile (or within 1 mile in open areas) of 

communal roosts when eagles are congregating, without prior coordination 

with the U.S. Fish and Wildlife Service and your state wildlife agency. 

5. Locate aircraft corridors no closer than 1,000 feet vertical or horizontal distance 

from communal roost sites. 
 National Bald Eagle Management Guidelines May 2007 

 15 

ADDITIONAL RECOMMENDATIONS TO BENEFIT BALD EAGLES 

The following are additional management practices that landowners and planners can 

exercise for added benefit to bald eagles. 

1. Protect and preserve potential roost and nest sites by retaining mature trees and old 

growth stands, particularly within 1⁄2 mile from water. 

2. Where nests are blown from trees during storms or are otherwise destroyed by the 

elements, continue to protect the site in the absence of the nest for up to three (3) 

complete breeding seasons. Many eagles will rebuild the nest and reoccupy the site. 

3. To avoid collisions, site wind turbines, communication towers, and high voltage 

transmission power lines away from nests, foraging areas, and communal roost sites. 

4. Employ industry-accepted best management practices to prevent birds from colliding 

with or being electrocuted by utility lines, towers, and poles. If possible, bury utility 

lines in important eagle areas. 

5. Where bald eagles are likely to nest in human-made structures (e.g., cell phone 

towers) and such use could impede operation or maintenance of the structures or 

jeopardize the safety of the eagles, equip the structures with either (1) devices 

engineered to discourage bald eagles from building nests, or (2) nesting platforms that 

will safely accommodate bald eagle nests without interfering with structure 

performance. 

6. Immediately cover carcasses of euthanized animals at landfills to protect eagles from 

being poisoned. 

7. Do not intentionally feed bald eagles. Artificially feeding bald eagles can disrupt their 

essential behavioral patterns and put them at increased risk from power lines, collision 

with windows and cars, and other mortality factors. 

8. Use pesticides, herbicides, fertilizers, and other chemicals only in accordance with 

Federal and state laws. 

9. Monitor and minimize dispersal of contaminants associated with hazardous waste 

sites (legal or illegal), permitted releases, and runoff from agricultural areas, especially 

within watersheds where eagles have shown poor reproduction or where 

bioaccumulating contaminants have been documented. These factors present a risk 

of contamination to eagles and their food sources. 
 National Bald Eagle Management Guidelines May 2007 

 16 

CONTACTS

The following U.S. Fish and Wildlife Service Field Offices provide technical assistance on bald 

eagle management: 

Alabama Daphne (251) 441-5181 

Alaska Anchorage (907) 271-2888 

 Fairbanks (907) 456-0203 

 Juneau (907) 780-1160 

Arizona Phoenix (602) 242-0210 

Arkansas Conway (501) 513-4470 

California Arcata (707) 822-7201 

 Barstow (760) 255-8852 

 Carlsbad (760) 431-9440 

 Red Bluff (530) 527-3043 

 Sacramento (916) 414-6000 

 Stockton (209) 946-6400 

 Ventura (805) 644-1766 

 Yreka (530) 842-5763 

Colorado Lakewood (303) 275-2370 

 Grand Junction (970) 243-2778 

Connecticut (See New Hampshire) 

Delaware (See Maryland) 

Florida Panama City (850) 769-0552 

Vero Beach (772) 562-3909 

Jacksonville (904) 232-2580 

Georgia Athens (706) 613-9493 

 Brunswick (912) 265-9336 

 Columbus (706) 544-6428 

Idaho Boise (208) 378-5243 

 Chubbuck (208) 237-6975 

Illinois/Iowa Rock Island (309) 757-5800 

Indiana Bloomington (812) 334-4261 

Kansas Manhattan (785) 539-3474 

Kentucky Frankfort (502) 695-0468 

Louisiana Lafayette (337) 291-3100 

Maine Old Town (207) 827-5938 

Maryland Annapolis (410) 573-4573 

Massachusetts (See New Hampshire) 

Michigan East Lansing (517) 351-2555 

Minnesota Bloomington (612) 725-3548 

Mississippi Jackson (601) 965-4900 

Missouri Columbia (573) 234-2132 

Montana Helena (405) 449-5225 

Nebraska Grand Island (308) 382-6468 

Nevada Las Vegas (702) 515-5230 

 Reno (775) 861-6300 

New Hampshire Concord (603) 223-2541 

New Jersey Pleasantville (609) 646-9310 

New Mexico Albuquerque (505) 346-2525 

New York Cortland (607) 753-9334 

 Long Island (631) 776-1401 

North Carolina Raleigh (919) 856-4520 

Asheville (828) 258-3939 

North Dakota Bismarck (701) 250-4481 

Ohio Reynoldsburg (614) 469-6923 

Oklahoma Tulsa (918) 581-7458 

Oregon Bend (541) 383-7146 

 Klamath Falls (541) 885-8481 

 La Grande (541) 962-8584 

 Newport (541) 867-4558 

 Portland (503) 231-6179 

 Roseburg (541) 957-3474 

Pennsylvania State College (814) 234-4090 

Rhode Island (See New Hampshire) 

South Carolina Charleston (843) 727-4707 

South Dakota Pierre (605) 224-8693 

Tennessee Cookeville (931) 528-6481 

Texas Clear Lake (281) 286-8282 

Utah West Valley City (801) 975-3330 

Vermont (See New Hampshire) 

Virginia Gloucester (804) 693-6694 

Washington Lacey (306) 753-9440 

 Spokane (509) 891-6839 

 Wenatchee (509) 665-3508 

West Virginia Elkins (304) 636-6586 

Wisconsin New Franken (920) 866-1725 

Wyoming Cheyenne (307) 772-2374 

 Cody (307) 578-5939 

State Agencies

To contact a state wildlife agency, visit the Association of Fish & Wildlife Agencies’ website at 

http://www.fishwildlife.org/where_us.html 

National Office

U.S. Fish and Wildlife Service 

Division of Migratory Bird Management 

4401 North Fairfax Drive, MBSP-4107 

Arlington, VA 22203-1610 

(703) 358-1714 

http://www.fws.gov/migratorybirds 
 National Bald Eagle Management Guidelines May 2007 

 17 

GLOSSARY 

The definitions below apply to these National Bald Eagle Management Guidelines: 

Communal roost sites – Areas where bald eagles gather and perch overnight – and 

sometimes during the day in the event of inclement weather. Communal roost sites are 

usually in large trees (live or dead) that are relatively sheltered from wind and are generally 

in close proximity to foraging areas. These roosts may also serve a social purpose for pair 

bond formation and communication among eagles. Many roost sites are used year after 

year. 

Disturb – To agitate or bother a bald or golden eagle to a degree that causes, or is likely to 

cause, based on the best scientific information available, 1) injury to an eagle, 2) a decrease 

in its productivity, by substantially interfering with normal breeding, feeding, or sheltering 

behavior, or 3) nest abandonment, by substantially interfering with normal breeding, feeding, 

or sheltering behavior. 

In addition to immediate impacts, this definition also covers impacts that result from humancaused alterations initiated around a previously used nest site during a time when eagles are 

not present, if, upon the eagle=s return, such alterations agitate or bother an eagle to a 

degree that injures an eagle or substantially interferes with normal breeding, feeding, or 

sheltering habits and causes, or is likely to cause, a loss of productivity or nest 

abandonment. 

Fledge – To leave the nest and begin flying. For bald eagles, this normally occurs at 10-12 

weeks of age. 

Fledgling – A juvenile bald eagle that has taken the first flight from the nest but is not yet 

independent. 

Foraging area – An area where eagles feed, typically near open water such as rivers, lakes, 

reservoirs, and bays where fish and waterfowl are abundant, or in areas with little or no water 

(i.e., rangelands, barren land, tundra, suburban areas, etc.) where other prey species (e.g., 

rabbit, rodents) or carrion (such as at landfills) are abundant. 

Landscape buffer – A natural or human-made landscape feature that screens eagles from 

human activity (e.g., strip of trees, hill, cliff, berm, sound wall). 

Nest – A structure built, maintained, or used by bald eagles for the purpose of reproduction. 

An active nest is a nest that is attended (built, maintained or used) by a pair of bald eagles 

during a given breeding season, whether or not eggs are laid. An alternate nest is a nest 

that is not used for breeding by eagles during a given breeding season. 

Nest abandonment – Nest abandonment occurs when adult eagles desert or stop attending 

a nest and do not subsequently return and successfully raise young in that nest for the 

duration of a breeding season. Nest abandonment can be caused by altering habitat near a 

nest, even if the alteration occurs prior to the breeding season. Whether the eagles migrate 

during the non-breeding season, or remain in the area throughout the non-breeding season, 

nest abandonment can occur at any point between the time the eagles return to the nesting 

site for the breeding season and the time when all progeny from the breeding season have 
 National Bald Eagle Management Guidelines May 2007 

 18 

dispersed. 

Project footprint – The area of land (and water) that will be permanently altered for a 

development project, including access roads. 

Similar scope – In the vicinity of a bald eagle nest, an existing activity is of similar scope to 

a new activity where the types of impacts to bald eagles are similar in nature, and the 

impacts of the existing activity are of the same or greater magnitude than the impacts of the 

potential new activity. Examples: (1) An existing single-story home 200 feet from a nest is 

similar in scope to an additional single-story home 200 feet from the nest; (2) An existing 

multi-story, multi-family dwelling 150 feet from a nest has impacts of a greater magnitude 

than a potential new single-family home 200 feet from the nest; (3) One existing singlefamily home 200 feet from the nest has impacts of a lesser magnitude than three singlefamily homes 200 feet from the nest; (4) an existing single-family home 200 feet from a 

communal roost has impacts of a lesser magnitude than a single-family home 300 feet from 

the roost but 40 feet from the eagles’ foraging area. The existing activities in examples (1) 

and (2) are of similar scope, while the existing activities in example (3) and (4) are not. 

Vegetative buffer – An area surrounding a bald eagle nest that is wholly or largely covered 

by forest, vegetation, or other natural ecological characteristics, and separates the nest from 

human activities. 
 National Bald Eagle Management Guidelines May 2007 

 19 

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