Controversial Environmental

Issues Explored through

Interdisciplinary Perspectives
THE CASE OF THE BALD EAGLE,
THE BOTANICAL GARDEN,
AND THE AIRPORT
by Stephen Burgin and Brandon Butler

F e b r u a r y 2 0 16 41
 THE CASE OF THE BALD EAGLE, THE BOTANICAL GARDEN, AND THE AIRPORT
H
ampton Roads, Virginia, which includes the city
of Norfolk, is a major metropolitan area with
many transportation needs, and as such is home
to a major international airport. The community also
has a vibrant shoreline/marsh/estuary ecosystem that
predates any large human population and subsequent
urban development. Norfolk also has many parks, one
of which is the Norfolk Botanical Garden, a large tract
of preserved land (including natural areas) surround-
ed by water that happens to be directly adjacent to the
airport. This area has been the historic home of a pair
of nesting bald eagles made famous as a result of a live
webcam stream of their nest. To protect the bald eagles
from air traffic, the U.S. Fish and Wildlife Service has
been tasked with removing their nest. Over the past
few years, nine different nests have been removed. De-
spite these efforts, these eagles and others continue to
return to the area to fish the waters surrounding the
botanical garden. Recently, on a trip to the garden, a
guide on our boat tour pointed out a bald eagle soar-
ing overhead, and discussed his personal views about
the futility of the nest removal process. As a result of
the continued eagle presence despite the destruction
of the nest, an environmental group has filed a lawsuit
asking for a halt to the nest removal process. It should
be noted that since the creation of this lesson, the pair
of eagles has built a new nest away from the airport
and garden. Additionally, the lawsuit has been dropped
(Eberly 2015). While the controversy now appears to
be resolved, it would only take the building of a new
nest on garden property for it to be renewed.
The importance of controversial issues in
the curriculum
In order to make informed decisions about the current
issues that society faces, robust scientific knowledge is
often crucial. Unfortunately, most curricula do not ask
students to make reasoned opinions about these issues
until high school. In this article, we present a multiday
lesson designed for sixth-grade middle school learners
to engage in the analysis of a controversial social issue
with scientific connections. The particular issue in this
case is the one discussed above, namely whether ac-
tive bald eagle nests should be removed from the com-
munitys botanical garden due to their proximity to an
Information ... could include the history of the bald eagle as the
national symbol of the United States, laws that have been created
regarding the disturbance of bald eagle nests, and the
economic costs associated with both removing a nest and
leaving it where it is at risk of airplane strikes.
42
international airport. The lesson is an interdisciplinary
science and language arts experience with connections
to social studies. The central issue in this lesson falls
into a category of scenarios known as socioscientific
issues (SSIs). Sadler (2011) defines SSIs as follows:
[SSIs are] open-ended problems without clear-cut
solutions; in fact they tend to have multiple plau-
sible solutions. These solutions can be informed
by scientific principles, theories, and data, but the
solutions cannot be fully determined by scientific
considerations. The issues and potential courses of
action associated with the issues are influenced by
a variety of social factors including politics, eco-
nomics, and ethics (p. 4).
An analog within social studies education is the peda-
gogical use of controversial public-policy issues. These
are defined as questions of public policy that spark sig-
nificant disagreement (Hess 2009, p. 37). In this case,
the issue sparking disagreement has multiple potential
solutions that must be weighed in light of understand-
ings of ecosystem dynamics, ethical considerations, and
economic cost-and-benefit analyses. In addition to the
ethical, economic, and environmental considerations is
the history of the bald eagle as a national symbol in the
United States. The scientific content and practices fea-
tured in this lesson align with the Next Generation Sci-
ence Standards (NGSS) (NGSS Lead States 2013).
Lesson context
The lesson follows a learning-cycle format popularly
known as the 5E method (Bybee 2014). It also employs
the use of a role-playing simulation, a technique known
to foster learning and create an atmosphere that is en-
gaging to a variety of students (Aubusson et al. 1997).
Specifically, this lesson would fit within a unit on ge-
ography in social studies or a unit on the examination
of the relationships within ecosystems. Specifically,
the lesson should come after students have already
examined concepts related to organism development
and reproduction. The sidebar on p. 43 connects the
content of this lesson to the NGSS. The resources are
referenced throughout. The general amount of time for
each phase is recorded based on an assumption of ap-
proximately one-hour class periods.
 THE CASE OF THE BALD EAGLE, THE BOTANICAL GARDEN, AND THE AIRPORT

ate to use in this phase of the learning cycle because it

Engage (half of a class period)
At the beginning of the lesson, students are asked to
watch a two-minute video clip (Wertz 2014) from a local
news broadcast that briefly explains the issue as it was
presented before a judge in court. The video is appropri-
does not delve into scientific content, nor does it report
on the judicial decision. Following the video, students
are asked: Should bald eagles be allowed to nest in
the botanical garden given its proximity to the airport?
The teacher then facilitates a discussion of the various

Connecting to the Next Generation Science Standards (NGSS Lead States 2013)
Standard
MS-LS2: Ecosystems: Interactions, Energy, and Dynamics
www.nextgenscience.org/msls2-ecosystems-interactions-energy-dynamics
Performance Expectation
The materials, lessons, and activities outlined in this article are just one step toward reaching the performance
expectations listed below.
MS-LS2-4. Construct an argument supported by empirical evidence that changes to physical or biological
components of an ecosystem affect populations.
Dimension Name or NGSS code/citation Matching student task or question taken
directly from the activity
Science and Engineering Analyzing and Interpreting Data Students individually analyze collected data,
Practices make comparisons with predicted results, and
Obtaining, Evaluating, and make appropriate conclusions followed by group
Communicating Information discusssion.

Students research, develop a position about

Disciplinary Core Ideas LS2.C. Ecosystem Dynamics,
Functioning, and Resilience
Moreover, anthropogenic
changes (induced by human
activity) in the environment
including habitat destruction,
pollution, introduction of invasive
species, overexploitation, and
climate changecan disrupt
an ecosystem and threaten the
survival of some species.
whether or not to remove bald eagle nests,
discuss their ideas, and write a letter defending
their position and proposed solution to the
nesting bald eagles near the airport.
Students participate in a role-play simulation
and gather information from online media as
they seek to identify the impact on ecosystems
when humans interact with them, in this case by
removing nests.

LS4.D. Biodiversity and Humans

There are many different kinds
of living things in any area, and
they exist in different places on
land and in water.
Crosscutting Concept Stability and Change Students record data in successive stages in a
simulation to observe the impact of nest removal
on the eagle population of a local community.

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 THE CASE OF THE BALD EAGLE, THE BOTANICAL GARDEN, AND THE AIRPORT

FIGURE 1 Eagles, fish, airplanes, and scientists simulation

Description:
In this simulation, you will take on the role of an eagle, fish, airplane, or scientist. Eagles must return a minimum of
five fish per day (round) to their nest to survive. However, fish are actively trying to avoid capture. Additionally, the
eagles must avoid the airplanes taking off and landing at the airport. Meanwhile, scientists will record data on the
impact on the system of the various players and how the location of the nest impacts the game.

Nest at the Botanical Gardens:

Days Number of fish taken back to nest Number of eagle hunting trips Number of eagle airplane strikes
1
2
3
4
5
6
7

Conclusions:

Nest far from the Botanical Gardens:

Days Number of fish taken back to nest Number of eagle hunting trips Number of eagle airplane strikes
1
2
3
4
5
6
7

Conclusions:

Overall Recommendation:

questions that need to be answered in order to identify
the factors associated with making an informed deci-
sion. Students should consider these questions in small
groups (two or three students) and then reconvene to
share their questions as a class. For example, students
might pose any number of the following questions:
How many eagles live at the botanical garden?
How much food do they eat?
How often do eagles get struck by airplanes?
Is it dangerous for the pilots and passengers if a
plane hits an eagle?
Are eagle nests protected by the government?
Why arent other types of birds nests protected?
It is important that the teacher allows students to
seek the answers themselves throughout the remain-
der of the lesson. The questions ought to be recorded
on the board and then returned to periodically through-
out the multiday lesson.

44
 THE CASE OF THE BALD EAGLE, THE BOTANICAL GARDEN, AND THE AIRPORT

think will happen during each of the two games (nest

Explore (one class period)
near the airport and nest farther away) and the reason-
Students are then introduced to the role-playing simu- ing behind their predictions.
lation activity. Figure 1 contains the student instruc- After each round, allow student scientists to tally the
tions and tables for students to use during the activ- number of fish taken back to the nest, the number of
ity. While the instructions are presented, the teacher eagle hunting trips made, and the number of times an
should project a map of the Norfolk Botanical Garden eagle was struck by the airplane. At the end of each
at the front of the class (Figure 2). This map clearly dis- game of seven days, return to the classroom and have
plays the proximity of the garden to the airport and the the student scientists report the data that were collect-
large body of water (Lake Whitehurst) from which the ed. Students then should be allowed time to individu-
eagles fish and near which they nest. The parameters ally analyze the collected data, make comparisons to
of the simulation have been developed in order to ex- what they predicted, and to make appropriate conclu-
plore the most likely variables that students would first sions followed by a group discussion. When participat-
identify as playing a factor in decisions regarding the ing in this role-playing activity, there is the chance that
nest removal policy, namely the effect of the distance the eagles might be more likely to be hit by airplanes
eagles need to travel to the lake to fish. The initial sim- when their nest is near the airport. This could lead stu-
ulation also relies on the assumption that the lake is the dents to conclude that nesting farther away from the
preferred or only fishing spot available to the eagles. airport would result infewer strikes and that therefore
During the simulation, students will take on the role the pair of eagles should be removed. While this con-
of airplanes, eagles, and fish. For a class of 24 students, clusion would be logical based on the data collected
we recommend two students as eagles, three students in this scenario, it does not account for all of the vari-
as airplanes, two students as scientists, and the remain- ables, which will be explained to students as they con-
ing students as fish. In the schoolyard or a large space in duct research at the conclusion of the simulation.
the school, mark off areas to represent the eagles nest,
the lake, and the airport runways. The students repre-
senting the airplanes spread their arms like wings and
Explain (one class period)
walk (not run) up and down the runways and may not Students are then given the task of conducting inter-
swerve out of the flight path so as to intentionally hit net-based research related to the issue at hand. Indi-
or not hit the eagles. Students as
fish must stay in the lake but can try
their best to avoid being caught by
FIGURE 2 Map of the Norfolk, Virginia, area
the eagles. The eagles must travel
from the nest to the lake and catch
one fish at a time to bring back to
the nest. Each round (approximate-
ly two minutes) represents one day.
Eagles must catch at least five fish
per day in order for their young to
survive. Throughout the game, two
scientists record data regarding
the number of fish caught and the
number of eagle strikes. Two games
(seven days/rounds) of the simula-
tion are run. The nest should be
located near the airport for the first
game and farther from the airport
for the second. During both games,
the nest should be placed so that the
eagles must cross the paths of the
airplanes. Prior to starting the sim-
ulation, students should be asked
to make predictions on their work-
sheet (Figure 1) about what they

F e b r u a r y 2 0 16 45
 THE CASE OF THE BALD EAGLE, THE BOTANICAL GARDEN, AND THE AIRPORT
vidually, students are instructed through a handout
(Figure 3) to visit the websites containing important
information regarding the controversial issue. First, all
students will read the same news article. Based on the
information provided, students make an initial decision
regarding the issue of whether or not the nests should
be removed. Then students visit the website of the Ea-
gle On Alliance (Senechal 2014), where they read the
arguments against removing the bald eagle nests. This
site contains information that, at first glance, may seem
contradictory to the results of the earlier simulation,
depending on how it played out, namely that a nesting
bald eagle pair is territorial and will guard their fishing
grounds from other bald eagles and that when a nest
is removed, other eagles will be drawn to the vacated
area and that other nests will be built. In other words,
the eagle population will increase with the removal of
a nest. Students also research the perspectives of both
the fish and wildlife commission (VDGIF 2012) and
the interests of the public at large as revealed through
digital news sources (e.g., Nolin 2013; Nolin and Wil-
son 2014; Wilson 2014). Students are also asked to
visit two other internet resources of their choosing to
learn about the ecosystem dynamics surrounding the
food webs involving bald eagles. Information on such
websites could include the history of the bald eagle as
the national symbol of the United States, laws that have
been created regarding the disturbance of bald eagle
nests, and the economic costs associated with both
removing a nest and leaving it where it is given the
chance of airplane strikes. For example, some of this
research could shed light on the reasons why the nest-
46
ing habits of certain birds are more protected than oth-
ers. At the end of the day, students should convene in
small groups to share the results of their research and
then report to the whole class. This worksheet should
then be collected by the teacher and saved for redistri-
bution during the Evaluate portion of the lesson.
Elaborate (one class period)
Following the research portion of the lesson, allow stu-
dents in groups of three or four to develop a new set
of rules for the role-play simulation based on what they
learned during their research. Students should feel em-
powered, as they are allowed to design their own rules,
but we provide the most likely changes that they will
come up with as examples to help steer the conversa-
tion, if necessary. The variable that students will likely
suggest to change due to their research will involve the
number of eagles present in the simulation. Additionally,
students might suggest that the two eagles, when the
nest is near the lake, ought to be territorial. This could
be represented by having the nesting pair seek out and
tag other eagles to remove them from the game. Allow
the groups to share their proposed rule changes and
come to a decision as a class regarding how the simula-
tion will be modified. Have students predict (using the
same handout provided in Figure 1) how the results of
the new simulation will differ. Then have students play a
seven-round simulation of their new game. Again, have
the student scientists report the data at the end and al-
low students time to analyze the data and form conclu-
sions individually, followed by a group discussion.
 THE CASE OF THE BALD EAGLE, THE BOTANICAL GARDEN, AND THE AIRPORT

FIGURE 3 An investigation of bald eagles in the Norfolk Botanical Garden

The problem
Hampton Roads, which includes Norfolk, is a major metropolitan area with many transportation needs, which has
resulted in the presence of a major international airport. The community also has a vibrant shoreline/marsh/estuary
ecosystem that predates any large explosions of human population. Norfolk also has many parks, one of which is
the Norfolk Botanical Garden, a large tract of preserved land (including natural areas) surrounded by water, which
happens to be directly adjacent to the airport. This area has been the historic home of a pair of nesting bald eagles.
Due to a desire to protect the bald eagles from air traffic, the U.S. Fish and Wildlife Service removes nests as soon
as they are built. However, bald eagles still return to fish the waters surrounding the botanical gardens. Some
environmental groups do not think it is appropriate or effective to remove bald eagle nests from the garden.
This week in class, we will examine this current event through activities. Today we want to focus on your personal
thoughts and development of a well-researched response to the following question: Should nesting bald eagles be
allowed to nest in the botanical gardens given their proximity to the airport? Follow the directions on these pages to
complete the activity.

The activity
Read the news article by Jillian Nolin, Evicted Norfolk eagle refuses to leave botanical garden. Once you finish
reading the article, document your initial response to the question: Should nesting bald eagles be allowed to nest in
the botanical gardens given their proximity to the airport? Share your response with your group before proceeding to
the next step.

Conducting research activity

Now that you have read the newspaper article that provides some information on the problem and documented
your initial response, we ask that you research additional information to develop a more in-depth response to the
question. You are welcome to alter your response based upon the evidence you find. We only ask that you document
the evidence you found in your online research. We provide three initial sources for you to visit. Additionally, we
would ask that you visit and document information that you find from two other websites of your own choosing.

Web link Article/website purpose Summary of evidence found on website

and creator/author supporting your response
www.eagleonalliance.com
www.dgif.virginia.gov/environmental-
programs/files/virginia-bald-eagle-
guidelines-for-landowners.pdf
www.pilotonline.com/news/government/
local/bald-eagle-hit-by-plane-killed-at-
norfolk-airport/article_7bcb1795-f134-
5603-b529-50421435cd97.html
Website of your choice:
Website of your choice:

Informed individual response

We ask that you revisit your initial response to the problem and revise it based on the evidence you found online and
as a result of the simulations. As you revise your response, be sure to provide factual evidence, such as comments or
quotes from individuals, organizations, or companies directly associated with the problem, in addition to the data from the
simulations. We also ask that you offer a specific solution that takes into account the economic and social considerations
involved with either leaving or removing the nests. If the nests are left, what measures do you propose should be taken to
keep eagles off of airport property? Share the final version of your response with your group.

F e b r u a r y 2 0 16 47
 THE CASE OF THE BALD EAGLE, THE BOTANICAL GARDEN, AND THE AIRPORT
Evaluate (half of a class period)
At the conclusion of the lesson, each student is asked
to decide whether the eagles nests should be removed
based on all the evidence collected in the preceding
portions of the lesson. The decision will be written
down on the handout provided that includes directions
(Figure 3). Remind students that the directions require
them to offer a specific solution to the problem at hand
that takes into account the economic and social consid-
erations involved with either leaving or removing the
nests. If the nests are left, what measures do students
propose should be taken to keep eagles off of airport
property? Following this, the classroom teacher should
facilitate an organized, whole-class discussion in which
students share their earlier recorded positions and de-
fend those positions based on evidence that includes,
but is not limited to, the results from the various simu-
lations. To assess this activity, students are asked to
write an individual letter to the editor of the local news-
paper outlining their position regarding the bald eagle
issue and their designed solution. The letter should
can be completed as a take-home assignment. Students
should demonstrate scientific content knowledge and
skilled referencing of evidence in the body of the letter
as they present their arguments.
Tips for other teachers
We would recommend that teachers use controversial
issues in their local communities to modify this lesson
in order to make it more locally relevant and likely
more meaningful to their students. Finding current
events in local media news outlets as we did when de-
signing this activity can be easily modified into simula-
tion activities and research followed by an opportunity
for students to make an informed decision regarding
the issue at hand.
Conclusion
Using local, current controversial issues can be an ac-
cessible way to teach science content and to engage
students in scientific practices such as formulating
evidence-based arguments. Learning science in this
way is not only practical but also potentially authentic
in the ways that it models the relevance of scientific is-
sues to social policy issues. This is a real goal of many
environmental scientists, and this lesson allows early
middle school students to experience it firsthand. It
is our hope that this article encourages other science
teachers to collaborate with social studies teachers to
design learning experiences focused on issues that hit
close to home.
48
References
Aubusson, P., S. Fogwill, R. Barr, and L. Perkovic. 1997.
What happens when students do simulation-role-play
in science? Research in Science Education 27 (4):
56579.
Bybee, R. 2014. The BSCS 5E instructional model:
Personal reflections and contemporary implications.
Science and Children 51 (8): 1013.
Eberly, T. The Virginian-Pilot. 2015. Norfolk bald eagles
relocate away from airport. January 22.
Hess, D.E. 2009. Controversy in the classroom: The
democratic power of discussion. New York: Routledge.
NGSS Lead States. 2013. Next Generation Science
Standards: For states, by states. Washington, DC:
National Academies Press. www.nextgenscience.org/
next-generation-science-standards.
Sadler, T.D., ed. 2011. Socio-scientific issues in the
classroom: Teaching, learning and research. New York:
Springer.
Resources for the lesson
Nolin, J. The Virginian-Pilot. 2013. Evicted Norfolk Eagle
Refused to Leave Botanical Garden. January 21.
Nolin, J., and P. Wilson. The Virginian-Pilot. 2014. Bald
Eagle Hit by Plane, Killed at Norfolk Airport. January
29.
Senechal, C. Eagle On Alliance. 2014. City of Norfolk
Sanctions Removal of Ninth Bald Eagles Nest at NBG.
February 20.
Virginia Department of Game and Inland Fisheries
(VDGIF) and the Center for Conservation Biology
(CCB) at the College of William and Mary and Virginia
Commonwealth University. 2012. Management of bald
eagle nests, concentration areas, and communal roosts
in Virginia: A guide for landowners. Richmond, VA:
VGDIF and CCB.
WAVY. 2014. Bald Eagle debate heads to court in Norfolk.
http://wavy.com/2014/07/08/bald-eagle-debate-heads-
to-court-in-norfolk.
Wilson, P. The Virginian-Pilot. 2014. Norfolk Botanical
Garden eagle pair spotted, still safe. February 4.
Stephen Burgin (srburgin@uark.edu) is an assis-
tant professor of secondary science education in
the Department of Curriculum and Instruction at
the University of Arkansas in Fayetteville, Arkan-
sas. Brandon Butler is an assistant professor
of social studies education in the Department of
Teaching and Learning at Old Dominion University
in Norfolk, Virginia.