Considerations for Establishing and Maintaining Successful Pollinator Programs on Airports (2022)

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29   As managers of large landholdings, airports are uniquely positioned to conduct operating and maintenance practices that improve habitat and forage for pollinator species. This chapter describes the primary ways these practices can be applied at airports to foster safety for airport operations. Examples are provided to show how these practices can work in tandem with environ- mental goals to provide habitat for pollinators. Since these practices are relatively new for airports, this chapter also includes lessons learned by DOTs that can be applied to airports interested in improving their land stewardship practices. 5.1 Overview of Current Operating and Maintenance Practices In managing airport property, the foremost goal is to maintain safety for staff and passengers; from a land management perspective this primarily involves deterring wildlife from interfering with airfields and aircraft. FAA regulation 14 CFR Part 139, Airport Certification, states that air- port staff are responsible for continuous monitoring of the airport property, particularly areas that are susceptible to wildlife conflicts in the AOA. Before implementing pollinator-friendly habitat programs, airport staff should collect baseline data to understand how changes could affect wildlife hazards (see Chapter 6 for more detail). Airport staff should also check local, state, and federal requirements for wildlife and habitat management to ensure that they will be in compliance. The primary areas of consideration included as part of an airport’s habitat management include airfield turf, landscaping, water resources, and other vegetation on the property. Non- aeronautical uses could include agriculture and land used for alternative energy generation. Areas of airport land that can make good pollinator habitats include those used for turf, landscaping, agriculture, and alternative energy, as well as other areas of vegetation. On an airfield, turfgrass is maintained to prevent visual obstructions but still allow runoff from impervious surfaces [FAA Advisory Circular (AC) 150/5370-10]. Maintenance of turfgrass can be costly because of the large equipment required and the frequency of mowing needed to meet regulatory standards. Turfgrass is mowed to keep the grass height low enough that small animals cannot use it as shelter, but tall enough to reduce forage for birds. The International Civil Aviation Organization recommends that airfield turfgrass be 8 inches tall or higher; the FAA recommends that it measure 6 to 12 inches. Other responsibilities for managing airfield turfgrass include maintenance of the surface area and placement and composition of the turfgrass. Some airports, including Salt Lake City International Airport, do not use turfgrass but instead use other materials to discourage wildlife, such as asphalt millings from runway overlays. Landscaping at airports may be visually pleasing, but it must be managed and maintained in a way that does not attract wildlife. For example, airports can avoid or minimize the planting of C H A P T E R 5 Pollinator Habitat Programs

30 Considerations for Establishing and Maintaining Successful Pollinator Programs on Airports trees on airport property or use trees with vertical branches so birds do not perch or build nests. Some airports, such as Portland International Airport in Oregon, have implemented methods such as vegetation berms or silt fencing to deter nesting birds. Airports often develop their own standards for landscaping, including allowable types of plantings as well as their locations, spacing, and regular maintenance requirements. In many cases, airport staff also coordinate with biologists, horticulturists, and landscapers to determine plant selections and landscaping approaches for their specific regions. Some airports have had success in developing alternative energy structures, such as solar fields or wind turbines. These developments may incur significant up-front costs, but reduce utility costs over the long term. If the structures are properly maintained and managed, airports will be less likely to experience additional wildlife in the area (Belant and Ayers 2014). Pollinator- friendly solar power has begun to gain traction in recent years, with some states offering incen- tives for pollinator-friendly landscaping below the solar panels (Fresh Energy 2021). Even though this is a relatively new concept, airports taking advantage of these incentives can benefit from outcomes associated with pollinator-friendly solar sites, such as reduced maintenance costs, erosion prevention, and increased pollinator forage (DeBerry et al. 2019). Establishing habitat that may attract hazardous wildlife within five miles of an airport or AOA is discouraged by the FAA; this may include land used for crops (such as grains, soybeans, and wheat) and feedlots for livestock. If cropland is included on an airport’s property, it may need to be included in that airport’s Wildlife Hazard Management Plan (WHMP). Confined livestock are discouraged because they can attract large flocks of birds, but grazing by free-ranging livestock can minimize bird attractants. Free-ranging livestock can also provide economic benefits to an airport by reducing the need for mowing and reducing the number of wildlife species that would otherwise be attracted to the area. Some airports in the United States, primarily in the Midwest, are converting agricultural land to native habitat. If properly managed, native habitat plantings can be less of a wildlife attractant than agricultural crops. Airports should contact their local FAA Airport District Office (ADO) before converting agricultural lands to habitat, planting crops, or implementing other agricultural methods (see Chapter 8 for more detail). The FAA has specific separation requirements for habitat in AOAs (FAA AC 150/5200-33). For other vegetation, an airport should consider the types of vegetation as well as their location, density, and size before planting at the airport to ensure that they are not wildlife attractants. Many airports use herbicides to manage landscape and habitat in order to reduce the presence of unwanted plants. To justify their use, the cost of using these chemicals should be less than alternative methods; permits for their use are often required. Standard operating procedures for herbicides should be developed to prevent their overuse. One method that can reduce the need for herbicides is to establish native plants. Native plants require less water and maintenance than non-native species. Airport staff can work with biologists and research the best native plantings for their region that would also provide habitat or resources for pollinators. 5.2 Overview of Pollinator Habitat Programs at Airports Pollinator species declines (Williams and Osborne 2009; Cameron et al. 2011; Smith et al. 2014; Zattara and Aizen 2021) point to a critical need for programs that aim to reverse habitat destruction. Unlike beekeeping programs that serve a single species of managed bee, pol- linator habitat programs have the potential to benefit hundreds of species. Managed and wild bees require a continuous bloom of flowering plants that provide nectar and pollen throughout the growing season. Wild bees also require undisturbed areas where they can make nests, such as dry, sandy, bare ground (for ground-nesting bees) or hollow and pithy stems from flowers and

Pollinator Habitat Programs 31   grasses (for cavity-nesting bees). By improving habitat for pollinators, airports support wild bee communities as well as managed honeybee colonies hosted by beekeeping programs at airports. For airports, the benefits of improving pollinator habitat include strengthening environ- mental stewardship practices, providing public engagement opportunities, and potentially reducing operating and maintenance costs. Establishing pollinator habitat is a relatively new practice for airports. Several airports in the United States with pollinator-focused objectives in their land management practices were identified, ranging from small- to large-scale projects (as shown in Table 6). To advance wild bee conservation, airports should explicitly consider the needs of wild bees in future restoration projects by providing nesting and foraging resources. An evaluation of the effects of ecological restoration on wild bee communities found that restoration had overall positive effects on the abundance and richness of bee species across multiple habitat types (Tonietto and Larkin 2017). In 2015, Seattle–Tacoma International Airport worked with The Common Acre to begin restoration of a 50-acre golf course, which included 8 to 10 acres desig- nated as wildflower meadows for pollinators. In 2014, prior to restoration activities, The Common Acre conducted surveys to collect baseline data on pollinator communities on the golf course. Subsequent annual surveys and collaboration with scientists from the University of Washington, University of California, Davis, and the United States Department of Agriculture (USDA) Logan Bee Lab have identified at least 100 species at this location. Since the start of the restoration project, The Common Acre cites a 70% increase in wild bee abundance and diversity (The Common Acre, Flight Path 2021). This program serves as a prime example of how airports can directly assist in wild bee conservation efforts by building habitat, as illustrated in Figure 9. 5.2.1 Reduced Mowing A widely accepted method of improving pollinator habitat is through the reduction of mowing. Wildflower species present in the soil’s existing seed bank will surface and bloom when mowing is reduced, as illustrated in Figure 10. By allowing meadows to regenerate naturally, land managers preclude the need to purchase wildflower seeds while also reducing operating and maintenance Figure 9. The Common Acre and Sea-Tac Airport restored a former golf course with 8–10 acres of pollinator habitat (Source: The Common Acre, used with permission).

32 Considerations for Establishing and Maintaining Successful Pollinator Programs on Airports costs (see Section 5.3 for more detail). To further save time and financial resources, airports can allow local farmers to cut tall grasses, such as hay, on an annual basis (Grothaus et al. 2009). Since hay meadows can attract rodents that in turn attract potentially hazardous species such as raptors and carnivores (Kaufman et al. 2000), airports with agricultural landholdings should work closely with farmers to minimize these attractants (see Chapter 6 for more detail). To mini- mize wildlife attractants, many government organizations recommend an intermediate grass height of 8 to 12 inches (Belant and Ayers 2014) to allow some wildflower species to bloom. In looking for ways to improve bee forage for their hives hosted at the Olympia Regional Air- port, the Olympia Beekeepers Association recommended that airport managers reduce mowing to improve bee forage. The airport followed the recommendation and allowed for 12 inches of growth between mowings. This reduction in mowing enabled the bloom of some flower species that provide important forage for the airport’s hives, as well as for wild pollinator species. The Olympia Beekeepers Association recognizes the importance of this forage to the survival of the hosted hives. 5.2.2 Plantings to Support Pollinators Airports may consider planting low-maintenance groundcovers that provide pollinator forage. When considering new seed mixes for airport plantings, it is important that those chosen will not be attractive to hazardous wildlife. The FAA recommends that airports avoid using seed mixtures that contain millet or any other large seed-producing grass. Trials can aid in creating a list of approved pollinator seed mixes for airports (FAA CertAlert 98-05). For example, Orlando International Airport set up test plots for various types of low-growing groundcovers that would reduce erosion and provide forage for pollinators. By starting with these small test plots, they can test installation methods, learn how these plants compete with existing weeds, and learn how they interact with wildlife. A clover mix was planned as one of the seed mixes in the trial. Although wildlife such as white-tailed deer are typically attracted to clover (Richer et al. 2005), the airport planned to carefully monitor these risks. The trials will result in a suite of seed mixes and planting options that will improve the airport’s environmental stewardship practices and also reduce the workload of its maintenance staff. Figure 10. Wildflower fields at Austin–Bergstrom International Airport (Source: AUS, used with permission).

Pollinator Habitat Programs 33   Austin–Bergstrom International Airport does not have a formal pollinator-friendly program, but the airport has maintained large wildflower plantings along its west runway since the early 2000s. These plantings showcase the state’s flower, the Texas bluebonnet (Lupinus texensis), as well as Indian Blanket (Gaillardia pulchella)—both of which benefit pollinators. Because the vegetation is planted in a highly visible area, members of the public have been strongly aware of these plantings; many have advocated for additional plantings over the years. The airport’s wildlife biologist is consulted prior to any new plantings to ensure that they will not attract wildlife hazards. Establishing a perennial pollinator garden is another method of incorporating habitat onto airport property. When planted in high-visibility areas, even small gardens can build aware- ness and serve as the public-facing example of an airport’s pollinator-friendly objectives. Staff at Aéroports de Montréal (the main airport authority for the Montréal area) worked with a contractor to install a bee-friendly garden near the beehives hosted at the Montréal–Trudeau International Airport. The installation served to engage airport staff and bring awareness to the pollinator program and the airport’s sustainability portfolio (Aéroports de Montréal 2015). Staff at Aéroports de Montréal noted that some plants installed in the garden outcompeted other species, leading to lower overall plant diversity. Their experience underlines the impor- tance of technical expertise, up-front planning, and consultation with qualified biologists in the design of pollinator plantings and gardens. Other considerations for plant choice include site conditions, attractiveness to pollinators, and regional climate. Like all gardens, pollinator gardens require ongoing maintenance (see Section 5.3 for more detail). To ensure the success of a pollinator garden, airports should identify maintenance tasks, staff roles, and funding sources early in the planning process. 5.2.3 Reduction in Pesticide Use Wild and managed bees are threatened by exposure to pesticides (including fungicides, insec- ticides, and herbicides). The effects of fungicides and insecticides on wild and managed bees are Prairie Restoration and Dayton International Airport In 2012, Dayton International Airport teamed with Aullwood Audubon to restore over 300 acres of farmland to prairie. This was in addition to a 150-acre parcel that was developed as a tall grass prairie in the late 1990s. The land, which was initially purchased as noise mitigation land, had been used primarily for agriculture, with the majority planted in corn and beans. During this transformation from agriculture to prairie, Aullwood Audubon assisted in choosing the plantings, which included native grasses and flowering plants that would provide forage and habitat to pollinator species. Though these plantings have been a success overall, the annual maintenance of these lands has presented challenges. As with any pollinator meadow or prairie, the frequency of maintenance activities is greatly reduced compared with adjacent lands planted with turf. However, the increase in vegetation means that annual maintenance activities require specialized equipment and knowledge beyond the capabilities of airport staff. The airport recognizes the importance of identifying groups or individuals who can maintain this type of habitat to support its longevity. The FAA is now encouraging the redevelopment of noise land into a compatible land use, leading to discussions

34 Considerations for Establishing and Maintaining Successful Pollinator Programs on Airports about developing some of these lands. This has caused great concern among the naturalists at Aullwood Audubon. The concerns generated by this proposed change in overall land use underline the importance of identifying and communicating the long-term goals of an airport’s pollinator program and how those goals align with future uses of the property. Prairie that was restored from agricultural land by Dayton International Airport in collaboration with Aullwood Audubon (Source: VHB, used with permission). Habitat Management Activity Airport Respondents Reduced mowing ORD, MSP, OLM, SEA Restricted herbicide use ORD, MSP, PIT, SEA Restricted insecticide use ORD, MSP, PIT, SEA Staff training for operations and maintenance ORD, MSP, PIT Pollinator-friendly plantings SEA, AUS Other: Species index surveys SEA Installation of native bee nest boxes None ORD: Chicago O’Hare Airport; MSP: Minneapolis–Saint Paul International Airport; OLM: Olympia Regional Airport; PIT: Pittsburgh International Airport; SEA: Seattle–Tacoma International Airport; AUS: Austin– Bergstrom International Airport. Table 6. Pollinator habitat management activities of participating airports. well-documented and include reduced cognitive function and foraging abilities, exacerbation of pathogen infection, reduced egg laying, and death (Vidau et al. 2011; Barron et al. 2014; Meikle et al. 2016; Arce et al. 2017). Often found in combinations throughout the environment, these chemicals may interact and cause detrimental synergic effects to pollinator species. Herbicides used in vegetation management can indirectly affect pollinator species by eradicating potential sources of nectar and pollen. Many airports that host beekeeping programs work to protect their apiaries through the reduction of herbicide and insecticide use (see Table 6). In these cases, airports have trained staff to avoid using these chemicals near the hives to reduce exposure. Since honeybees will travel over five miles from their hives (Beekman and Ratnieks 2000), they are likely to interact with any chemicals applied within a large radius of apiaries. In a study that tested pollen loads carried by honeybees foraging across agricultural landscapes, an average

Pollinator Habitat Programs 35   of six pesticide detections per sample were found, with a high of 39 detections in one of the samples (Mullin et al. 2010). To protect wild and managed bees, airports should consider widely restricting the application of these chemicals. 5.3 Lessons Learned from Departments of Transportation There are over 17 million acres of roadside in the United States (Galea et al. 2016). Similar to airports, DOTs must manage rights-of-way and other land areas to ensure safety and reduce wildlife hazards. DOTs have become increasingly involved in managing roadsides as habitat for animals, including pollinator species. In many ways, DOTs have pioneered pollinator- friendly land management practices for large landholdings. As a result, there are many excellent resources that provide technical assistance on how to manage transportation lands as habitat for pollinators (see Appendix E for a list of such resources). This section provides key lessons learned from this body of literature as well as from interviews with DOT representatives. These lessons can be applied to airports interested in establishing pollinator habitat. 5.3.1 Site Suitability Analysis and Preparation Are Critical for Pollinator Plantings A site suitability analysis can inform an airport’s decision on whether to establish pollinator habitat. Such an analysis is particularly important for sites at which operators will be installing seed mixes or new plantings. Closely examining specific site characteristics can inform which practices and tools to use. A site suitability analysis can also highlight site-specific factors that could hinder a pollinator habitat installation project and dictate whether efforts should be applied elsewhere. According to participating DOTs, site-specific management plans and seed mixes are key to the long-term success of pollinator habitats. For example, a seed mix may blossom into a prosperous pollinator habitat in one location, but that same seed mix may not be as effective at another site (even one nearby) depending on a variety of factors, including moisture, soil quality, past contamination, presence of invasive or woody plant species, or other environmental conditions. Site-specific characteristics to consider in a suitability analysis include the following: • Sun exposure • Topography • Hydrology • Soil characteristics • Existing vegetation and presence of noxious or invasive plants • Neighboring land use The Connecticut Department of Transportation (CTDOT) initially experienced difficulty in growing successful pollinator habitats. After some trial and error, CTDOT learned to assess potential pollinator habitats on a site-by-site basis to determine which sites were most suitable for pollinator habitat and which seed mixes were best suited to each location (see Figure 11). Similarly, the Ohio Department of Transportation (ODOT) noted that no two pollinator habitats were alike, and the seed mixes and tools needed to establish these mixes varied accordingly. ODOT developed a scorecard to assist in evaluating a potential pollinator habitat for site feasibility (Ohio Depart- ment of Transportation 2016). The Virginia Department of Transportation (VDOT) works with contractors to maintain 1,000 to 10,000-square-foot pollinator gardens across 23 locations, including district offices, rest areas, and park and rides. VDOT noted that the most expensive sites to manage were those with noxious or invasive plants that encroached on their gardens, further underlining the importance of examining existing vegetation during initial site planning.

36 Considerations for Establishing and Maintaining Successful Pollinator Programs on Airports Figure 11. Connecticut Department of Transportation (CTDOT) saw a natural increase in pollinator habitat when it reduced its mowing practices along roadsides (Source: CTDOT, used with permission). Pollinator-Friendly Land Management Practices Save Taxpayer Money For some land managers, creating pollinator habitat is as simple as reducing mowing frequency to allow wildflowers to grow and bloom. As managers of large areas of land, state DOTs have spearheaded efforts to increase pollinator forage on a large scale through land management changes. Ohio’s Department of Transportation manages 1,200 acres of high-value pollinator habitat on roadsides and at rest stops, as well as at ODOT garages, remnant properties, and offices. ODOT’s pollinator habitat program led to the creation of Brownfields to Blooms, a program that remediates brownfield sites on ODOT- owned land and turns them into plant pollinator habitats. ODOT has drawn awareness to its pollinator habitat program and to Brownfields to Blooms through social media and the use of witty, strategically placed posters in proximity to its pollinator habitats; these serve to further educate the public about pollinators. ODOT reported that reducing mowing to once per year opened up 80,000 acres of suitable habitat for pollinators, saved the agency and Ohio taxpayers nearly $2 million in annual maintenance costs, and enabled maintenance workers to redirect efforts previously expended on frequent mowing to other tasks. 5.3.2 Reduction in Mowing Leads to Cost Savings Owing to its potential for cost savings, reduced mowing is a highly attractive method for improving pollinator habitat and is a method widely used along roadsides by DOTs. ODOT reported that reduced mowing practices have resulted in savings of $2 million in annual mainte- nance costs. Less time spent mowing has also allowed maintenance workers to focus on other work or projects that they previously did not have time to complete. The Vermont Agency of Transportation (VTrans) employs a three-year rotational mowing cycle such that only one-third

Pollinator Habitat Programs 37   of their acreage outside clear zones is mowed in a given year, greatly reducing mowing costs and mobilization efforts. CTDOT has implemented reduced mowing at its 80 designated pollinator habitat sites and has also reduced mowing in other areas to support pollinators (CTDOT 2018); the agency also found that reduced mowing enabled maintenance workers to focus on other tasks. CTDOT’s reduced mowing practices are conducted on a site-by-site basis, determined by the seasonality of each site’s plantings. Similarly, VDOT has used Light Detection and Ranging for mapping; this has enabled the agency to track mowable areas on a site-specific basis. 5.3.3 Participation in Monarch Candidate Conservation Agreement with Assurances (CCAA) Offers Regulatory Incentives Airports may be able to leverage existing programs such as the Monarch Candidate Con- servation Agreement with Assurances (CCAA) to implement pollinator-friendly habitat man- agement practices. The monarch butterfly (Danaus plexippus) is one of North America’s most iconic pollinator species. Documented declines of monarch populations have led the United States Fish and Wildlife Service (USFWS) to issue the Monarch Candidate Conservation Agree- ment with Assurances (CCAA). Participants in the CCAA voluntarily agree to provide habitat for the monarch butterfly on a portion of lands; this participation offers them a streamlined regulatory process that can help them avoid costly project delays if the butterfly is federally listed as an endangered species. All utility companies and DOTs nationwide are invited to participate in this program (U.S. Fish and Wildlife 2021). Private as well as state-owned airports are also eligible. State-owned airports managed by DOTs can choose to implement pollinator-friendly practices on their own lands or simply receive these assurances for the lands enrolled and managed by their state’s DOT. In many cases, participating DOTs have found that their current management practices already largely align with the program, and they are able to cite their ongoing efforts when they enroll in the CCAA. 5.3.4 Use Existing Resources and Forge Collaborative Partnerships Numerous resources are available to assist groups to develop pollinator-friendly habitat. Par- ticipating DOTs stressed the importance of leaning on the technical guidebooks, scorecards, seed mixes, and best management practices that have already been developed. See Appendix E for a list of resources. Forging collaborative partnerships can also provide technical expertise. For example, VDOT’s program began with a collaboration between garden clubs and other local organizations to help fund and install plantings at rest areas and park and rides. ODOT partnered with Pheasants Forever, Natural Resources Conservation Service, and Ohio State University to develop its seed mixes and installation methods. CTDOT partnered with the Connecticut Department of Energy and Environmental Protection (CTDEEP) to select, prepare, and plant at selected sites (see Figure 12). Collaborative partnerships with universities and nonprofits can also open up funding opportunities, as discussed in Chapter 7. See Appendix F for more information on funding resources. 5.3.5 Obtain Internal Support Gaining internal support, especially at a high level, is important to the success of these pro- grams. DOTs recommend educating internal stakeholders about why the program is important as well as highlighting the benefits and potential for cost savings (see Chapter 7 for more detail). ODOT’s Pollinator Habitat Program Administrator had worked in ODOT’s communications office for 22 years. Their approach to obtaining internal support was to identify three internal audiences: upper management, frontline managers, and highway workers, and craft messages that highlighted the specific benefits that would resonate with each group.

38 Considerations for Establishing and Maintaining Successful Pollinator Programs on Airports Figure 12. Signage can help distinguish pollinator- friendly habitat and engage the public (Source: Connecticut Department of Transportation, used with permission).