ST. GEORGE — The Bureau of Land Management has announced a proposed draft plan aimed at conserving the greater sage-grouse and its habitat, a move that could tighten restrictions on drilling, mining and other commercial activities on public lands spanning 10 Western states.
To address what is becoming evident of a decades-long decline in sage-grouse populations, the BLM — joined by a mix of input from federal, tribal, state and local agencies — is in the process of finalizing revisions to 77 existing conservation plans developed nearly 10 years ago.
The bureau oversees the largest portion of sage-grouse habitat in the United States, encompassing nearly 70 million acres out of a total of 145 million acres it manages. The BLM’s updated conservation plans cover greater sage-grouse populations in California, Colorado, Idaho, Montana, Nevada, North Dakota, Oregon, South Dakota, Utah and Wyoming.
Home not only to sage-grouse but also to songbirds, mule deer, pronghorn, pygmy rabbits and more than 350 animal species, America’s “sagebrush sea” consists of a vast expanse of sagebrush grasslands that blankets the yawning basins and broad plateaus of the Intermountain West.
Once spanning nearly 320 million acres from the Dakotas to California, the sea is now but a fraction of its past expanse. Because of natural and manmade impacts on the ecosystem, the U.S. experiences a loss of 1.3 million acres of sagebrush habitat annually. Some experts believe the sagebrush sea has dwindled to half its historical range.
As the health of ecosystems goes, so goes the health of species that depend on it for survival, said Patricia A. Deibert, BLM acting national sage-grouse coordinator.
“This bird is indicative of an ecosystem that’s in trouble,” Deibert said. “It’s kind of a big canary (in a coal mine) telling us there is something wrong out there. Not only are we at risk of losing the sage-grouse, but everything that lives within the sagebrush ecosystem as well.”
Once, flocks of greater sage-grouse filled the sky high above many western states.
Now, because of various factors, including habitat fragmentation, climate change, fires and manmade activities, the bird has experienced a substantial decrease in population over the past 60 years. According to a 2020 U.S. Geological Survey, the bird’s population numbers have seen an 80% decline across its range since 1965 and a close to 40% drop since 2002.
Alison Holloran, executive director of Audubon Rockies and vice president of the National Audubon Society, said although her organization is still digesting BLM’s 2,000-plus page document, there are some significant takeaways that are presented.
“From an Audubon standpoint there has been a lot of new research and scientific techniques developed over the past 10 years,” Holloran said. “We are really leaning on the BLM to use the most current science available to inform land management decisions.”
The BLM has proposed six alternatives to conserve sage-grouse habitat and reduce the likelihood of the species being classified as endangered. These amendments aim to manage land-use plans across almost 70 million acres.
Alternative No. 5, the agency’s preferred option, is described as a “moderate” approach.
Although the Audubon Society hasn’t shown support for one alternative over the others, in reality, it could involve using pieces formed from many of the alternatives, Holloran said.
“For each of the stakeholders there is usually an alternative that is preferred, conservation organizations included,” Holloran added. “Although the alternative may be everything we want, which would be wonderful – if we could say, ‘Go with that one,’ there is a reality to consensus that helps ensure the durability of any plan.”
To achieve a level of consensus, the agency has considered nearly 1,900 comments gathered during an initial public scoping period and information shared by state, local, federal and tribal partners during more than 100 meetings.
“I think we do look for consensus and that has been the underlying goal of this effort,” said Nada L. Culver, BLM deputy director. “What is needed … is an understanding between the BLM, the states and private landowners. We’ve learned a lot on what (government agencies) can do and what private landowners are interested in. We think we are trying to achieve consensus here because it’s critical for this effort to succeed.”
Conservation groups have had mixed reactions to the draft plan. Aaron Weiss, the deputy director of the Center for Western Priorities, referred to it as the “final best chance” for the preservation of the sage-grouse.
“This is truly a ‘clock is ticking’ moment,” Weiss said. “Are you ever going to get to a point where everyone is totally happy? No. That’s the nature of consensus. What is important is to look at the BLM plan as a framework rather than a prescriptive management plan.”
Although the bird has been embraced as a part of the culture of the American West, it has also become a linchpin topic driving continued conflicts between the federal government, industrial interests and environmental advocates. The BLM’s latest proposal is anticipated to ignite fresh debates and legal disputes.
By all accounts, the energy industry has – and may continue – its legal challenges to any proposed regulatory changes.
Oil/gas/renewable Energy
BLM’s recent revisions to greater sage-grouse resource management plans could have significant impacts on the oil and gas industry by restoring some restrictions on drilling, but there are several caveats to this becoming a reality.
“The plan does not close areas to leasing or development,” Culver said trying to dispel public misconceptions. “This requires looking after how much surface disturbance there is, distances between leks and seasonal changes. Right now, this does not change any lands available for leasing except to provide additional conditions for development within the most important sage-grouse habitats. If there is a way to do production and exploration in a way that doesn’t impact habitat then we can accommodate that effort.”
As of February 2023, the U.S. had more than 24 million acres under lease agreements with oil and gas companies for onshore drilling.
Recent data (October 2023 – January 2024) shows that the BLM received 1,464 new onshore drilling permit applications. Of these, 1,111 were processed and 1,044 approved. In Utah, 157 new permits were received with 105 approved during this period.
These numbers contribute to the national total, which includes previously awarded but inactive leases, resulting in 7,369 permits available for drilling and 5,492 permits pending. In Utah, there were 516 new permits available for drilling with 292 pending, at the time of writing this report.
Kathleen Sgamma, the president of the Western Energy Alliance, which represents oil and gas firms across the Rocky Mountain West, said she is skeptical of the “one-size-fits-all federal approach.”
Looking ahead, Sgamma said the Western Energy Alliance will closely monitor how the BLM accommodates state-specific variations. She pointed out that Wyoming’s sagebrush habitat is vastly different than Utah’s.
Sgamma added that each state has unique topographies, predation issues and habitat qualities, making a uniform approach impractical.
“We’ve been involved in sage-grouse for two decades … and we have been extremely engaged in all of the plans and the revisions to the plans,” Sgamma said. “We have provided comments, protested them and filed lawsuits. What we have found over the years is that government agencies have continued to overstate the impacts from oil and natural gas, and underestimate impacts from things such as wildfires, predation and the like.”
For now, the Western Energy Alliance has an open mind on the latest BLM conservation plan.
“We are still assessing BLM’s preferred alternative,” Sgamma said. “Yes, the devil is in the details, but I do see a genuine desire by BLM to find balance between competing interests and uses of public lands. That’s BLM’s job. It’s a tough job, but I do sense there is a real willingness to find a better balance with regards to sage-grouse … and that they are trying to be more practical than the Biden administration is on a lot of other issues.”
While sage-grouse regulations have prompted lawsuits from the oil and gas industry in the past, they may also hinder clean energy projects vital for the nation’s shift from fossil fuels in the future. These projects encompass wind farms, solar arrays and mineral mines for electric vehicles and other green technologies.
Alternative 5 aims to redirect renewable energy developments away from vital sage-grouse habitats and facilitate the coordination of conservation efforts across different states.
For wind and solar projects, as well as major rights-of-way, Alternative 5 prefers a less direct approach to avoidance, offering instead the possibility for financial payments or in-kind contributions to “offset” the effects on the greater sage-grouse and its habitat.
Previous studies indicate that large-scale wind and solar developments can adversely affect sage-grouse populations. Although these projects are permitted in general habitats, the plans guide development away from areas designated as priority habitats for sage-grouse.
The BLM will hold 13 public meetings to answer questions and take further comments on the draft alternatives and analysis. The draft environmental impact statement and plan amendments will open for public comment through June 13. More information can be found on this website.
A final environmental impact statement is expected this fall.
For now, each alternative would bring some restrictions on commercial activities, with varying amounts of land affected. Despite its attempts to achieve a middle-ground consensus, if adopted, the preferred alternative would extend the highest level of sage-grouse protection to an additional 2.5 million acres, totaling nearly 35 million acres.
Land managers acknowledge the necessity of these measures, regardless of their impact on the oil and gas or renewable energy sectors.
New science
“A lot of the ‘new science’ (BLM has considered) has tweaked what we know … which is really exciting because it helps us make the right land management decisions for the future,” Deibert said. “As things keep evolving and we continue to work with our partners I think we can make things happen. I would not have joined this effort if I wasn’t optimistic that we can make a difference in the long-term conservation for this species and its ecosystem, but this is a marathon. I am optimistic, but the time to act is now.”
Recent scientific advancements embraced by the BLM have uncovered previously unknown patterns of long-distance dispersal and migration, providing new insights for conservation efforts.
Using DNA from feathers found at their mating grounds (leks), scientists have discovered that a small percentage of grouse populations (about 1%) embark on long journeys to explore breeding grounds as far as 120 miles away. These movements could enhance survival and mating success by mitigating the risks of genetic isolation and inbreeding.
The sage-grouse initiative’s initial study, published in 2017, investigated the dispersal movements between breeding sites and found that approximately 1% of the population was inclined to travel. Instead of remaining at familiar leks, these birds venture to new lek sites over surprisingly great distances.
A subsequent study in 2017 focused on the seasonal migration patterns of a population that travels much further than any other known grouse species, undertaking a 150-mile round-trip between breeding areas in Canada and their wintering grounds in the U.S.
With the aid of satellite telemetry and DNA analysis, land managers now have a more detailed understanding of the birds’ movements. Collectively, these studies highlight the necessity for sage-grouse to have expansive tracts of unspoiled native sagebrush habitat to thrive.
It’s vital, some conservation groups say, to preserve not only seasonal habitats but also the expansive, interconnected landscapes that facilitate their migratory pathways and genetic diversity.
Other research projects to restore habitat have focused on techniques to halt the spread of invasive species such as cheatgrass, improve ranching techniques to restore degraded meadows and rangeland, and investigate how climate change and other stressors are affecting sage-grouse populations.
“If we do our level best to use the most current research and science available, using all we know to restore, improve, protect and conserve the ecosystem, sage-grouse and other species will be the winner,” Holloran said.
History
Estimates suggest that as many as 16 million greater sage-grouse once inhabited Canada’s plains and high deserts and 13 western U.S. states, including California, Colorado, Idaho, Montana, Nevada, North Dakota, Oregon, South Dakota, Utah, Washington and Wyoming.
Because of habitat fragmentation, climate change and other impacts, estimates now put the current population somewhere between 200,000 and 500,000 birds.
Despite the greater sage-grouse’s significant habitat loss, the bird has not been listed as an endangered species. In 2015, the U.S. Fish and Wildlife Service determined that listing the species was unnecessary because of adequate protective measures put in place by the Obama administration.
According to The Pew Charitable Trusts, “polls conducted in counties inhabited by sage-grouse, communities in or adjacent to sage-grouse habitat largely supported the BLM’s 2015 sage-grouse conservation plans, which were widely hailed by sportspeople, biologists and governors as a victory for the iconic bird and the other species that call the Western sagebrush home.”
However, the 2015 plan and amendments from the Trump era that reduced protections for sage-grouse habitats have not halted the bird species’ decline. This is despite federal courts blocking the Trump amendments in 2019 and some oil industry leases in 2022. The issue remains under dispute in ongoing litigation.
Since 2015, numerous studies have focused on sage-grouse management. These studies, along with a BLM five-year monitoring report, have revealed that conservation and restoration efforts must be improved, broadened and intensified to counteract the causes of the greater sage-grouse’s decline.
“It’s the nature of compromise and why the 2015 plan was so hard fought,” Weiss said. “It took a lot of hard work to get everyone to the table to come up with a plan that they could work with. This is why it was so unfortunate that Ryan Zinke and David Bernhardt (both former Secretaries of the Interior), under President Trump, went and undermined everything. For things to get so quickly unwound played a large part into what has led us to the situation we now find ourselves in.”
What the Biden Administration is trying to achieve, Weiss added, is to craft a plan that stands a good chance to work.
“There is a lesson here about the value of listening, something the Trump administration was unwilling to do,” Weiss said. “This is why what he wanted was either tossed out by the courts or has since been reversed. There really is a stark contrast with what Trump was doing and with what the Biden administration is trying to achieve.”
Economic impacts
In Utah’s oil and gas sector, employment rose by 16% from 2021 to 2022, adding over 1,000 jobs, bringing the total to 7,449. After a halt during the COVID-19 pandemic, the state now has around 15 active drilling operations, mainly in Duchesne and Uinta counties. Utah contributes 15 barrels for every 100 produced in the Rocky Mountain region. The state’s five refineries, all situated near Salt Lake City, can process approximately 206,000 barrels of crude oil daily.
There are serious ramifications for state and local governments if the price of crude oil drops. A $1 decrease in the price per barrel of oil can lead to an approximate $12 million loss in revenue for states dependent on severance taxes from oil and gas production.
Some economists maintain that oil will continue to be an essential component of the energy mix for years to come. They assert that oil provides security and anticipate that Americans are unlikely to relinquish this source of stability.
“Quite frankly, we’ve lost almost a decade,” Holloran said. “In order to keep this bird off the Endangered Species list and thriving in its habitat we need to move, and we need to move now. I refuse to believe that we are going to lose this fight for the bird.”
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