[Federal Register: April 8, 2004 (Volume 69, Number 68)]
[Rules and Regulations]
[Page 18499-18507]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr08ap04-13]
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DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
50 CFR Part 17
RIN 1018-AG09
Endangered and Threatened Wildlife and Plants; Determination of
Endangered Status and Prudency Determination for Designation of
Critical Habitat for Two Plant Species From the Commonwealth of the
Northern Mariana Islands
AGENCY: Fish and Wildlife Service, Interior.
ACTION: Final rule.
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SUMMARY: We, the U.S. Fish and Wildlife Service (Service), determine
endangered status and critical habitat prudency pursuant to the
Endangered Species Act of 1973, as amended (Act), for two plant
species: Nesogenes rotensis (no common name) and Osmoxylon mariannense
(no common name). Nesogenes rotensis and Osmoxylon mariannense are
found only on the island of Rota in the U.S. Commonwealth of the
Northern Mariana Islands (CNMI). Based on a public comment, we have re-
examined the basis of recognition of Tabernaemontana rotensis as a
distinct endemic species on Rota and the U.S. Territory of Guam, and
are not listing this species as endangered. This rule implements the
protection and recovery provisions afforded by the Act for these
species.
DATES: This rule is effective May 10, 2004.
FOR FURTHER INFORMATION CONTACT: Gina M. Shultz, Acting Field
Supervisor, the Pacific Islands Fish and Wildlife Office; telephone,
808/792-9400; facsimile, 808/792-9581.
SUPPLEMENTARY INFORMATION:
Background
Nesogenes rotensis, Osmoxylon mariannense, and Tabernaemontana
rotensis all occur on the island of Rota in the CNMI; Tabernaemontana
rotensis is also found in the U.S. Territory of Guam.
We provided detailed physical descriptions for these species and
their habitats for Guam and Rota in the proposed listing rule (65 FR
35025, June 1, 2000).
Discussion of the Three Plant Species
Nesogenes rotensis
Williams has observed Nesogenes rotensis in flower throughout the
year; however, she has never observed it in fruit (Laura Williams, CNMI
Division of Fish and Wildlife (DFW), pers. comm. 2004).
Biannual surveys for this species have been conducted since 2000.
The species was observed in flower in February 2000, and a direct count
was made on June 27, 2000 (L. Arriola, in litt. 2000). At that time
there were 80 individuals within an approximate area of 960 yd \2\ (800
m \2\). In May and November 2001, direct counts made by staff from CNMI
DFW identified 458 and 579 adult plants, respectively. No individuals
of Nesogenes rotensis were observed in May or November of 2003
following supertyphoon Pongsona; however, 34 adults were observed in
December 2003 (L. Williams, pers. comm. 2004).
Osmoxylon mariannense
In 2000, a survey conducted by biologists with the CNMI DFW
identified six living, and five dead, individual trees on Rota (L.
Arriola, in litt. 2000). A survey conducted in 2002 by Taisacan
confirmed eight occurrences in this same vicinity, again with only one
living mature tree in each. Osmoxylon mariannense individuals were
defoliated during supertyphoon Pongsona; however, are leafing out and
appear to be recovering (E. Taisacan, pers. comm. 2003).
Tabernaemontana rotensis
Tabernaemontana rotensis has been recognized as an endemic species
on Guam and Rota by most who have studied the flora of the Marianas
(Fosberg in Stone 1980, Raulerson pers. comm., Herbst pers. comm.) and
is recognized as distinct by the government of Guam. Nevertheless, in
an authoritative monographic work on the genus in the Old World
(Leeuwenberg 1991), it was submerged in an expansive interpretation of
the widespread species T. pandacaqui, which was originally described
from the
[[Page 18500]]
Philippines, but that in Leeuwenberg's interpretation ranges from
southern China to Australia and includes several dozen previously
recognized species. Differences of this sort are not uncommon regarding
species or groups of related species that have broad and discontinuous
ranges. Prompted in part by a comment from the Air Force, we have re-
examined the basis for recognition of T. rotensis as a distinct endemic
species and now consider Leeuwenberg's treatment to be the most
credible taxonomic interpretation of the native Tabernaemontana of Guam
and Rota. Since we have no authority to list plants at a level below
subspecies or variety, and there is no indication that T. pandacaqui is
endangered or threatened throughout all or a significant portion of its
range, we are not listing T. rotensis. Despite this determination, we
recognize that native Tabernaemontana is an important natural resource
and an element of the native biodiversity of these two islands. It is
perfectly appropriate that local authorities seek to conserve this
species, but under our current understanding of its taxonomy, it does
not qualify for protection under the Act. If further information
becomes available that supports recognition of an endemic taxon, we
will reconsider the need to list.
Previous Federal Action
On June 1, 2000, we published the proposed rule to list as
endangered three plant species from the Mariana Islands (65 FR 35025).
In that proposed rule (beginning on page 35027), we included a detailed
summary of the previous Federal actions completed prior to publication
of the proposal. We now provide updated information on the actions that
we have completed since publication of the proposed rule. Our final
listing decision for Nesogenes rotensis, Osmoxylon mariannense, and
Tabernaemontana rotensis was deferred due to lack of resources because
the Service's Pacific Islands Office (where the proposed listing was
initiated) staff were under court orders to designate critical habitat
for 255 Hawaiian plants and four Hawaiian invertebrates. Pursuant to a
settlement agreement approved by the U.S. District Court for the
District of Hawaii on August 21, 2002, the Service must make a final
decision on whether to list these species and submit this decision to
the Federal Register by April 1, 2004 (Center for Biological Diversity
v. Norton, Civil No. 99-00603 (D. Haw.)).
Summary of Comments and Recommendations
In our June 1, 2000, proposed rule and associated notifications, we
requested that all interested parties submit comments, data, or other
information that might contribute to the development of a final rule. A
60-day comment period closed on July 31, 2000. Appropriate CNMI and
Government of Guam agencies, Federal agencies, and other interested
parties were contacted and requested to comment. A legal notice
announcing the publication of the listing proposal was published in the
Marianas Variety newspaper on June 16, 2000, and the Pacific Daily News
on June 23, 2000. During this period we received one request for a
public hearing from the CNMI DFW. On October 30, 2000, we gave notice
in the Federal Register (65 FR 64649) and the Marianas Variety of the
public hearing to be held on the island of Rota and reopened the public
comment period until November 29, 2000. On November 16, 2000, we held a
public hearing at the Rota Resort, Rota.
We reopened the public comment period on January 9, 2004, because
we believed that additional review was warranted at this time since
three years had passed since publication of the proposed rule (69 FR
1560). In order to address any additional comments received in response
to reopening the comment period and to meet the August 21, 2002, court
order to submit to the Federal Register a final listing decision for
these three plants no later than April 1, 2004, the comment period was
open for 18 days, closing on January 26, 2004. The reopening of the
comment period gave all interested parties additional time to consider
the proposed rule's information and submit comments on the proposal.
During the comment periods, we received a total of 18 letters,
facsimile transmissions, comment cards, and e-mails from public
agencies and individuals. Eleven of these written communications were
from various departments of the government of the CNMI and Guam, two
were from the Air Force, and the remaining five were from non-
governmental entities. Of the written comments, four reviewers
supported the listing of Nesogenes rotensis, Osmoxylon mariannense, and
Tabernaemontana rotensis, ten opposed the listing, three provided
information on the species but remained neutral on the listing, and one
recommended delaying the listing of Tabernaemontana rotensis. Five
persons provided testimony at the public hearing held on November 16,
2000. We received oral comments from a representative from the Mayor's
office on Rota and four representatives from the CNMI DLNR at this
public hearing. Representatives of the Mayor's office and the CNMI DLNR
also responded by letter or e-mail during the first comment period.
This final rule has been revised and updated to reflect the
comments and information received during the comment periods. We
address those substantive comments concerning the rule in the summary
that follows.
Peer Review
Our Interagency Cooperative Policy for Peer Review in Endangered
Species Act Activities published in the Federal Register (59 FR 34270)
states that the Service will incorporate independent peer review in
listing decisions during the public comment period in the following
manner: (1) solicit the expert opinions of a minimum of three
appropriate and independent specialists regarding pertinent scientific
and commercial data and assumptions relating to the taxonomy,
population models, and supportive biological and ecological information
for species under consideration for listing; and (2) summarize in the
final decision document the opinions of all independent peer reviewers
received on the species under consideration. The purpose of such review
is to ensure that listing decisions are based on scientifically sound
data, assumptions and analyses, including input of appropriate experts
and specialists.
In accordance with our policy, we sought the expert opinions of
seven independent reviewers regarding the proposed rule. The purpose of
such review is to ensure that our decisions are based on scientifically
sound data, assumptions, and analyses. We invited these peer reviewers
to comment, during the public comment periods, on the accuracy of the
data used regarding the proposed listing of Nesogenes rotensis,
Osmoxylon mariannense, and Tabernaemontana rotensis and conclusions
drawn from these data. We received comments from four peer reviewers
during the comment period. Three reviewers concur with our
determination to list based upon available information on the species.
One peer reviewer recommended a delay in the listing of Tabernaemontana
rotensis pending the collection and analysis of an additional five
years of data. All of the reviewers agreed that the proposed rule was
based on scientifically sound data, assumptions, and analysis. These
experts' comments are incorporated in the final rule and
[[Page 18501]]
summarized in the following responses to comments.
Issue 1: Biological Justification and Methodology
Comment 1: One peer reviewer recommended that as additional
individuals of Tabernaemontana rotensis have been found since the time
of the proposed listing we continue to gather information on population
data and monitor select groups of individuals of to determine local
trends in numbers, seedling survival rates, and causes of mortality in
populations on the islands of Guam and Rota. Based on the analysis of
this new information, the status of the species would then be re-
assessed after five years. Other reviewers also suggested that, based
on the detection of new individuals, Tabernaemontana rotensis, may be
more widespread than originally believed. The peer reviewer also
believed that we had failed to incorporate information on a significant
population of Tabernaemontana rotensis which occurs on an upper terrace
of Tagua Point.
Our Response: The Service collected, collated, and analyzed that
new information on the newly documented individuals of Tabernaemontana
rotensis and distribution on Guam and Rota since the publication of the
proposed listing rule in 2000. This included field observations and
information from persons with direct knowledge of the species. The new
information was provided by knowledgeable private individuals,
Territory of Guam and Commonwealth biologists, and the Air Force.
However, we are not listing T. rotensis on the basis of taxonomy.
Section 4(i) Comments Received From Commonwealth and Territorial
Government Agencies
Issue 1: Biological Justification and Methodology
Comment 2: The Guam Department of Agriculture (GDOA) and the Air
Force provided additional information on the locations and population
numbers of Tabernaemontana rotensis. Several reviewers, including the
GDOA, CNMI DLNR, and the Air Force commented, however, that listing of
one or more of the three species should be based on the results of
comprehensive, island-wide surveys as it would be premature to list
them absent the results of such survey efforts.
Our Response: As required by the Act (section 4(a)(1)) and its
implementing regulations, we must list species as endangered or
threatened based on the best available scientific and commercial
information. We have determined that Nesogenes rotensis and Osmoxylon
mariannense meet the definition of endangered. However, we are not
listing Tabernaemontana rotensis on the basis of taxonomy.
As cited above in the response to Comment 1, since publication of
the proposed listing in 2000, we have compiled new information on the
numbers of individuals and distribution of Nesogenes rotensis and
Osmoxylon mariannense and incorporated this information into the final
rule. These two species have been the subject of searches conducted in
the last 20 years on Rota by knowledgeable biologists and technicians,
including staff from the CNMI DLNR and DFW. Biannual surveys for
Nesogenes rotensis have been conducted on Rota since 2000 by biologists
from the CNMI DFW to assess the health and status of the single known
population at Po[ntilde]a Point Fishing Cliff; however, no surveys have
been conducted for Nesogenes rotensis in other coastal habitat areas on
Rota. Nesogenes rotensis is currently known from a single population of
34 individuals. Surveys between 1980 and 1995 on Rota located 20
individuals of Osmoxylon mariannense in the same limestone forest area
that it had been reported from almost 50 years earlier (D. Grout and L.
Mehrhoff, pers. comm.1997; L. Raulerson, pers. comm. 1998). Surveys
conducted in 1997 and 1998 in the same area following several typhoons
located only eight individuals (E. Taisacan and G. Hughes, pers. comm.
1998). In a survey conducted in 2000, CNMI DFW identified six living
and five dead trees (L. Arriola, in litt. 2000). And in a 2002 survey,
eight living trees were reported in the same vicinity (E. Taisacan,
pers. comm. 2003).
Comment 3: The CNMI DLNR requested that, in addition to
comprehensive, island-wide surveys, the following issues be considered
prior to listing: species distribution, identification of destructive
pests and diseases, propagation techniques, land ownership rights,
public education and awareness, management plans for existing
populations, and short- and long-term recovery plans for the species.
Our Response: As cited above in response to Comment 2, since
publication of the proposed listing in 2000, we compiled new
information on the numbers of individuals and the distributions of
Nesogenes rotensis and Osmoxylon mariannense, and have incorporated
this information into this final rule.
To date, no specific diseases have been identified for these
species, and we are not aware of any research on destructive pests or
diseases of these two species. Individuals of Osmoxylon mariannense
have been reported to suffer defoliation by an unknown agent (L.
Mehrhoff and C. Russell, pers. comm. 1997; E. Taisacan, pers. comm.
1997). Invertebrate pests, rats, or disease are suspected to be the
cause for a lack of seedlings or juveniles of Osmoxylon mariannense,
deleterious effects on the leaves, and the death of several mature
individual trees (D. Grout, pers. comm. 1997).
We are aware of ongoing efforts by the CNMI DNLR to propagate
Osmoxylon mariannese for outplanting on Rota (E. Taisacan, in litt.
2002). A summary of these efforts is provided in this final rule below
under Factor 3. There is no species-specific management plan.
Currently, no Federal recovery plans exist for Nesogenes rotensis
and Osmoxylon mariannense because such documents are prepared for
species subsequent to their listing as endangered or threatened under
the Act. Following the listing of Nesogenes rotensis and Osmoxylon
mariannese, recovery plans will be completed pursuant to section
4(f)(1) of the Act for these three species. These plans will provide a
framework for combining and coordinating Federal, State, and regional
agency efforts for conservation of the species as well as establish
recovery priorities and estimate the cost of tasks necessary to
accomplish these priorities. They will also describe site-specific
management actions necessary to achieve conservation and survival of
these species.
Comment 4: The GDOA also commented that they did not feel that fire
was a threat to Tabernaemontana rotensis because none of the trees
occur in a fire-prone area, and fire is not known to occur in limestone
forests on Guam or Rota. Rather, they point out that fires originate
from human use of an area or vandalism. In addition, GDOA feels that
few obvious threats to Tabernaemontana rotensis have been noted on
Guam. Finally, GDOA suggests that clearings created by typhoons or
humans might actually favor reproduction in this species and that the
species, overall, appears to be quite hardy and resilient to adverse
environmental and anthropogenic damage.
Our Response: The threat of fire is no longer an issue because we
are not listing T. rotensis on the basis of taxonomy.
Issue 2: Effects of Listing
Comment 5: The CNMI DLNR commented that Tabernaemontana rotensis
and Osmoxylon mariannense
[[Page 18502]]
are currently listed as endangered under CNMI public law and that
stakeholders have taken the initiative, under local home rule, to
protect the resources under their jurisdiction.
Our Response: Section 4 of the Act provides guidance regarding the
listing of species. Listing decisions are based upon the best
scientific and commercial data available and take into consideration
those efforts, if any, being made by any State or foreign nation, or
any political subdivision of a State or foreign nation, to protect such
species, whether by predator control, protection of habitat and food
supply, or other conservation practices, within any area under its
jurisdiction. With Federal protection as listed species, Federal
agencies all insure that these species are not jeopardized pursuant to
section 7 actions and Federal monies may be made available for their
conservation pursuant to section 6 of the Act. Osmoxylon mariannense
and Nesogenes rotensis are endemic to Rota. Osmoxylon mariannense is
included on the ``List of Protected Wildlife and Plant Species in the
CNMI'' (Table 3 of the 1999 revised DFW regulations implementing CNMI
Public Law 2-51) for Rota; however, Nesogenes rotensis is not. Pursuant
to these DFW regulations, protected species may not be hunted or
harassed. These regulations do not, however, identify specific
prohibitions regarding collection or possession of protected plant
species or any requirements to analyze the effects of any proposed
actions on such species. Cooperative efforts between the Service and
the Rota DFW have resulted in the construction of fenced exclosures
around several individuals of Osmoxylon mariannense on Rota. We are
unaware of any other actions to protect the unfenced trees and to
alleviate the threats posed by feral Sambal deer and pigs as well as
invasive non-native plant species.
Comment 6: The Mayor of Rota commented that there are no Federal
lands on Rota and asked if Federal protection would extend to private
property.
Our Response: Federal protection of listed plants extends to
private lands under two circumstances: (1) removal, cutting, digging
up, damaging, or destroying endangered plants would constitute a
violation of section 9 if conducted in knowing violation of State law
or regulations or in violation of State criminal trespass law and (2)
any activity that would be authorized, funded, or implemented by a
Federal entity requires, pursuant to section 7(a) of the Act, that the
Federal entity evaluate their actions with respect to any species that
is proposed or listed as endangered or threatened, and with respect to
its critical habitat if any is designated (50 CFR part 402). If a
Federal action may affect a listed species or its critical habitat, the
responsible Federal agency must enter into consultation with the
Service to ensure that its actions are not likely to jeopardize the
continued existence of the species or destroy or adversely modify its
critical habitat. Examples of Federal agency actions on private lands
in the Commonwealth of the Northern Mariana Islands that may require
consultation include the following: Army Corps of Engineers projects,
such as the construction of roads, firebreaks, and bridges; various
U.S. armed forces activities on the northern Mariana Islands, including
combat and mobility training and construction; Natural Resources
Conservation Service projects; Federal Emergency Management Agency
activities; and U.S. Department of Housing and Urban Development
projects. Conservation of these plant species may be consistent with
some ongoing operations at these sites; however, the listing of these
species in the CNMI could result in some restrictions on certain
Federal activities and the use of certain lands.
Comment 7: The Air Force and another reviewer commented that the
Service should accept the taxonomic inclusion of Tabernaemontana
rotensis into Tabernaemontana pandacaqui based on Leeuwenburg (1991) as
it is the only peer-reviewed study directly applicable on Guam.
Our Response: We have re-examined the basis for recognition of T.
rotensis' as a distinct endemic species and now consider Leeuwenberg's
treatment to be the most credible taxonomic interpretation of the
native Tabernaemontana of Guam and Rota. Accordingly, we are not
listing T. rotensis.
Non-Government Comments
Comment 8: One reviewer asked if the listing of Nesogenes rotensis,
Osmoxylon mariannense, and Tabernaemontana rotensis would impede local
recovery efforts with the need to obtain numerous Federal permits and
extra paperwork that would be required by the Service policy regarding
the propagation of listed species.
Our Response: Under the Act, the controlled propagation of animals
and plants in certain situations is recognized as an essential tool for
the conservation and recovery of listed species. In recognition of
this, our ``Policy Regarding Controlled Propagation of Species Listed
Under the Act'' (65 FR 56916) addresses botanical facilities and others
who may be involved in the propagation of listed species. The goals of
this policy include coordinating recovery actions specific to
controlled propagation activities; maximizing benefits to the listed
species from controlled propagation efforts; assuring that appropriate
recovery measures other than controlled propagation and other existing
recovery priorities are considered in making controlled propagation
decisions; and ensuring prudent use of funds. We have also made
substantial efforts to avoid adverse impacts, economic or otherwise, in
order that cooperative recovery partnership opportunities may be
maintained or increased with qualified organizations and individuals.
As such, no significant adverse impacts to persons or entities involved
in the propagation of federally-listed plant species, including
Osmoxylon mariannense and Nesogenes rotensis, are anticipated.
Comment 9: One reviewer commented that the Service should propose
critical habitat for Nesogenes rotensis, Osmoxylon mariannense, and
Tabernaemontana rotensis concurrent with the final rule to list the
species.
Our Response: In this final rule, we find that critical habitat for
N. rotensis and O. mariannense is prudent but not determinable at this
time due to a lack of information regarding the physical and biological
features or specific areas essential to the conservation of these three
species. In accordance with section 4(b)(6)(C)(ii) of the Act, however,
it is our intent, if funded, to gather this information and to propose
critical habitat for these two plant species within one year of their
listing. In the interim, we will protect the two plant species through
the provisions provided pursuant to sections 7 and 9 of the Act.
However, we are not listing T. rotensis on the basis of taxonomy.
Comment 10: One reviewer asked if the listing of Nesogenes
rotensis, Osmoxylon mariannense, and Tabernaemontana rotensis would
result in extra protection for these three species.
Our Response: This is discussed in Our Response to Comment 6.
However, we are not listing T. rotensis on the basis of taxonomy.
Summary of Factors Affecting the Species
Section 4(a)(1) (16 U.S.C. 1531 et seq.) of the Act and regulations
(50 CFR part 424) promulgated to implement the Act describe the
procedures for adding species to the Federal lists. We may
[[Page 18503]]
determine a species to be endangered or threatened due to one or more
of the five factors described in section 4(a)(1) of the Act. These
factors and their application to Nesogenes rotensis and Osmoxylon
mariannense are discussed in the following sections. The primary
threats facing these two species are summarized in Table 1.
The only known population of Nesogenes rotensis at Pona Point
Fishing Cliff occurs in an area adjacent to a trail that is subject to
bonfires, collecting, trampling by fishermen and tourists, and
potential expansion of the park's facilities. Casuarina equisetifolia
(ironwood), a large-stature, fast-growing non-native tree, is
colonizing the Po[ntilde]a Point Fishing Cliff area. Ironwoods can
reach heights of up to 65 ft (20 m) and form monotypic stands that can
shade out other plant species. Dominance by Casuarina equisetifolia
takes up much of the available nutrients, and the species is believed
to release allelopathic chemicals that prevent understory growth (Neal
1965; Smith 1985). Ironwoods presence constitutes a major threat to
Nesogenes rotensis through degradation of suitable habitat. As such,
given the current single population is comprised of only 34
individuals, Nesogenes rotensis is extremely vulnerable to other
factors. For example, two typhoons have made landfall on Guam and Rota
since this species was proposed for listing: typhoon Chataan in July
2002 and supertyphoon Pongsona in December 2002. While the species
appears to be recovering from the effects of supertyphoon Pongsona, it
remains extremely vulnerable during this recovery period (L. Williams,
pers. comm. 2004).
Table 1.--Summary of Primary Threats to Nesogenes rotensis and Osmoxylon mariannense
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Non-native Development/ road Typhoons/ Trampling/
Species Feral animals Rodents plants Invertebrate pests work storms collection Vandalism Limited numbers
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Nesogenes rotensis............. Unknown........ Unknown........ Yes............. Unknown............ Yes................ Yes........... Yes........... Potential..... Yes; 34
individuals.
Osmoxylon mariannense.......... Yes............ Potential...... Yes............. Potential.......... Yes................ Yes........... Unknown....... Potential..... Yes; 8
individuals.
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The primary threat to Osmoxylon mariannense is degradation or
disturbance of native forest habitat from a variety of factors
including competition from invasive non-native species and feral
ungulate activity. Rota has historically experienced typhoon
disturbances that have opened the canopy of the sabana forest
considerably, creating conditions favorable to invasive non-native
shrubs and vines that compete with Osmoxylon mariannense (L. Mehrhoff,
in litt. 1995). Feral pigs (Sus scrofa) and deer (Cervus mariannus) are
abundant on Rota, and their browsing and trampling threaten unfenced
individuals (G. Hughes, pers. comm. 1998; L. Williams, pers. comm.
2004). Predation of seeds that fall to the forest floor by insects,
house mice (Mus musculus), and/or rats (Rattus spp.) is also a
suspected cause of reduced or absent reproductive vigor. Since several
individuals occur in close proximity to roadways, routine road
maintenance and/or improvement also pose a threat to the species.
A. The present or threatened destruction, modification, or
curtailment of its habitat or range. Native vegetation, including cloud
limestone forest habitat for Osmoxylon mariannense and open coastal
scrubland habitat for Nesogenes rotensis on Rota, has undergone extreme
alteration due to past and present land use practices, including
ranching, deliberate and unintentional non-native animal and plant
introductions, agricultural, and military activities during World War
II (Falanruw et al. 1989).
Rota was subject to extensive agricultural development
(particularly cultivation of sugar cane in the lowland areas) by the
Japanese prior to World War II. The island was not, however, invaded by
allied forces during World War II. Rota retains less than 60 percent of
its historic native forest (Falanruw et al. 1989). Continued loss of
native forest is attributable to application of the Agricultural
Homestead Act of 1990 that allows for the distribution of 2.5-ac (1-ha)
parcels of public land to eligible participants. Land use plans have
proposed that approximately 25 to 45 percent of Rota be designated
private agricultural homestead land or as land likely to be converted
to agricultural homesteads (Resources Northwest, Inc. 1997). In 2001,
the Agricultural Homestead Act of 1990 was amended to allow
agricultural homestead permitting on any public lands not required for
government use or reserved for other purposes by any other provision of
the law. Thus, individuals awaiting permits may choose many areas of
Rota's public lands for agricultural homesteads, rather than areas
planned and reserved specifically for those purposes (Pub. L. 12-53).
Therefore, the potential for agricultural development continues to
threaten the remaining limestone forests on Rota, which include habitat
for Osmoxylon mariannense.
Throughout the Mariana Islands, goats, pigs, cattle, and deer have
severely damaged forest vegetation by browsing on plants, causing
habitat degradation and erosion (Kessler 1997; Marshall et al. 1995)
that then retards forest growth and regeneration (Lemke 1992).
Remaining habitat is threatened by fragmentation and degradation
associated with resort development, agricultural activities, and road
maintenance and construction (D. Grout and L. Mehrhoff, pers. comms.
1997). Individuals of Osmoxylon mariannense on Rota were almost lost
during road-widening activities that occurred in the late 1990s (D.
Grout and L. Mehrhoff, pers. comms. 1997). Coastal habitat is
threatened by fragmentation and degradation associated with resort
development, and potential beach park expansion and development of park
facilities at the only known location of Nesogenes rotensis.
B. Overutilization for commercial, recreational, scientific, or
educational purposes. At this time, overutilization of the two species
is not known to be an important factor. Unrestricted scientific or
horticultural collecting by interested individuals may significantly
affect these species due to their extremely low numbers. The only
population of Nesogenes rotensis is located in a public park and
threatened by trampling by foot traffic and bonfires set by tourists
and fishermen. Due to the small population size, reproductive vigor may
also be depressed by a limited gene pool.
Propagation studies are ongoing only for Osmoxylon mariannense on
Rota. Seeds were collected from wild individuals of Osmoxylon
mariannense and planted in October 2001 and March 2002. From the
October planting, approximately 150 individuals had germinated by
November, and, as of March 2002, 11 are surviving in a
[[Page 18504]]
nursery. The seeds planted in March 2002, produced approximately 100
seedlings. Thirty-five of these individuals survived and are in good
condition (Taisacan 2002).
C. Disease and predation. To date, no specific diseases have been
identified for these species. Individuals of Osmoxylon mariannense have
suffered defoliation by an unknown agent (E. Taisacan, pers. comm.
1997). Invertebrate pests, rats, or disease are suspected to have
caused the defoliation due to the poor health of the leaves, the lack
of seedlings or juveniles of Osmoxylon mariannense, and the death of
several previously mapped older individual plants (D. Grout, pers.
comm. 1997).
Feral ungulates threaten seedlings of Osmoxylon mariannense (G.
Wiles, in litt. 1998; D. Janeke, pers. comm. 2003; L. Williams, pers.
comm. 2004). Cooperative efforts between the Service and the Rota DFW
have resulted in the construction of fenced exclosures around several
individuals of Osmoxylon mariannense. The majority of individuals of
Osmoxylon mariannense are not currently protected by fencing and are
vulnerable to browsing or trampling by feral ungulates.
D. The inadequacy of existing regulatory mechanisms. Osmoxylon
mariannense is on the list of protected species for the government of
the CNMI but there are no specific prohibitions regarding collection or
possession of protected plant species or requirement for the analysis
of potential adverse effects associated with proposed projects.
Nesogenes rotensis is not included on this list of protected species in
the CNMI.
At the time of publication of the proposed rule, an island-wide
multiple species habitat conservation plan for Rota was envisioned by
the CNMI government and local Rota residents. This plan was to be
prepared with technical assistance from the Service. The preparation of
this plan has since been abandoned by the CNMI government in lieu of
the development of a project-specific habitat conservation plan to
address impacts to a single species, the Mariana crow (Corvus kubaryi)
(Arlene Pangelinan, Service, pers. comm. 2003).
E. Other natural or manmade factors affecting its continued
existence. The combination of storm disturbance and resultant
competition from invasive, non-native plant species adversely affects
the condition of habitat occupied by Osmoxylon mariannense (L.
Williams, pers. comm. 2004). Rota has a long history of disturbances by
tropical typhoons (Weir 1991). While native biota are adapted to these
events, these typhoons, in combination with anthropogenic disturbances,
and the relatively new presence of invasive species threaten the
continued existence of Nesogenes rotensis and Osmoxylon mariannense.
Within the past decade, frequent typhoons have made landfall on Rota,
severely affecting the islands. Most recently, super typhoon Pongsona
affected the Mariana Islands, particularly Guam and Rota, with winds of
up to 184 mph. While Nesogenes rotensis and Osmoxylon mariannense are
expected to have adapted to high winds, typhoons, and storm surge,
their distribution and numbers have been reduced significantly due to
human activities and this makes the remaining individuals particularly
susceptible to extirpation or extinction from a natural disaster.
Destruction of the sabana forest canopy by typhoons has adversely
affected Osmoxylon mariannense by altering sub-canopy vegetation
conditions over the long-term by opening up and drying out older,
closed forest habitat (E. Taisacan, pers. comm. 1998; L. Williams,
pers. comm. 2004). The single population of Nesogenes rotensis is
extremely vulnerable to typhoons, storm surge, and high surf because
its open scrubland habitat is located in a coastal area. Osmoxylon
mariannense is threatened by competition from one or more invasive,
non-native plant species including Momordica charantia, Mikania
scandens, and Passiflora suberosa. In opened forest areas, various
opportunistic, weedy vines such as Momordica charantia, Momordica
scandens, and Passiflora suberosa cover the ground (Fosberg 1960; G.
Hughes, pers. comm. 1998) and may alter conditions necessary for seed
germination and seedling growth provided in closed-canopy, high-stature
forests covered with mosses and various epiphytic species. Casuarina
equisetifolia is becoming established in the coastal scrubland habitat
at Pona Point Fishing Cliff and will likely spread and change the
coastal scrubland into a forest habitat with no understory due to
restriction of available sunlight, restriction of available nutrients,
and possibly release of a chemical agent that prevents other plants
from growing beneath it and, thereby, adversely affecting the single
remaining population of Nesogenes rotensis (Smith 1985; L. Williams,
pers. comm. 2004).
Small population size and limited distribution make these species
particularly vulnerable to extinction from reduced reproductive vigor
or random environmental events. On Rota, 8 individuals of Osmoxylon
mariannense, and a single population of 34 individuals of Nesogenes
rotensis are known. A single adverse environmental event or lack or
decline of successful reproduction in Nesogenes rotensis or Osmoxylon
mariannense could lead to the extinction of these two species.
Nesogenes rotensis is found in the coastal zone where a single
disturbance from storm surge could destroy a significant percentage of
the individuals or the entire population. In addition, the continuing
adverse impacts of trampling of Nesogenes rotensis by people and/or
expansion of facilities at Pona Point could also destroy a significant
percentage of the individuals or the entire population resulting in the
extinction of this species.
We have carefully assessed the best scientific and commercial
information available on the past, present, and future threats facing
these species in determining the actions to take in this rule. Based on
this evaluation, the appropriate action is to list Nesogenes rotensis
and Osmoxylon mariannense as endangered. Nesogenes rotensis is endemic
to the island of Rota and has one population with fewer than 34
individuals. Osmoxylon mariannense is endemic to the island of Rota and
has eight occurrences, with only one living tree in each. These two
species are threatened by one or more of the following: habitat
degradation or destruction by feral ungulates; competition for space,
light, water, and nutrients with invasive non-native plant species;
road construction and maintenance activities; trampling by humans
(Nesogenes rotensis); development; limited reproductive vigor;
vandalism; natural disasters or random environmental events; and
potentially disease or predation by insects, mice, or rats. Because
these species are in danger of extinction throughout all or a
significant portion of their ranges, they fit the definition of
endangered as defined in the Act.
Critical Habitat
Section 4(a)(3) of the Act, as amended, and implementing
regulations (50 CFR 424.12) require that, to the maximum extent prudent
and determinable, the Secretary designate critical habitat at the time
the species is determined to be endangered or threatened. Our
implementing regulations (50 CFR 424.12(a)) state that critical habitat
is not determinable if information sufficient to perform the required
analyses of impacts of the designation is lacking, or if the biological
needs of the species are not
[[Page 18505]]
sufficiently well known to permit identification of an area as suitable
habitat.
We find that designation of critical habitat for Nesogenes rotensis
and Osmoxylon mariannense, is not determinable at this time because we
are unable to identify the physical and biological features essential
to the conservation of these two species and we are unable to identify
whether specific unoccupied areas are essential for their conservation.
When a ``not determinable'' finding is made, we must, within one year
of the publication date of the final listing rule, designate critical
habitat, unless the designation is found to be not prudent.
We will continue to protect these two species and their habitat
through the recovery process and section 7 consultations to assist
Federal agencies in avoiding jeopardizing these species.
Available Conservation Measures
Conservation measures provided to species listed as endangered or
threatened under the Act include recognition, development of recovery
plans, requirements for Federal protection, and prohibitions against
certain activities. Recognition through listing results in public
awareness and encourages conservation actions by Federal, State,
Tribal, and local agencies, non-governmental conservation
organizations, and private individuals. The Act provides for possible
land acquisition and cooperation with the States and requires that
recovery actions be carried out for listed species. Recovery planning
and implementation, the protection required by Federal agencies and the
prohibitions against certain activities involving listed species are
discussed, in part, below.
The primary purpose of the Act is the conservation of endangered
and threatened species and the ecosystems upon which they depend. The
ultimate goal of such conservation efforts is the recovery of these
listed species, so that they no longer need the protective measures of
the Act. Subsection 4(f) of the Act requires the Service to develop and
implement plans for the conservation of endangered and threatened
species (``recovery plans''). The recovery process involves halting or
reversing the species' decline by addressing the threats to its
survival. The goal of this process is to restore listed species to a
point where they are secure, self-sustaining, and functioning
components of their ecosystems, thus allowing delisting.
Recovery planning, the foundation for species recovery, includes
the development of a recovery outline as soon as a species is listed,
and later, preparation of draft and final recovery plans, and revision
of the plan as significant new information becomes available. The
recovery outline--the first step in recovery planning--guides the
immediate implementation of urgent recovery actions, and describes the
process to be used to develop a recovery plan. The recovery plan
identifies site-specific management actions that will achieve recovery
of the species, measurable criteria that determine when a species may
be downlisted or delisted, and methods for monitoring recovery
progress. Recovery teams, consisting of species experts, Federal and
State agencies, non-government organizations, and stakeholders, are
often established to develop recovery plans. When completed, a copy of
the recovery outline, draft recovery plan, or final recovery plan will
be available from our Web site (http://endangered.fws.gov) or, if
unavailable or inaccessible, from our office (see FOR FURTHER
INFORMATION CONTACT section).
Implementation of recovery actions generally requires the
participation of a broad range of partners, including other Federal
agencies, States, non-governmental organizations, businesses, and
private landowners. Examples of recovery actions include habitat
restoration (e.g., restoration of vegetation), research, captive
propagation and reintroduction, and outreach and education. The
recovery of many listed species cannot be accomplished solely on
Federal lands. To achieve the recovery of these species requires
cooperative conservation efforts on private lands as many occur
primarily or solely on private lands.
The funding for recovery actions can come from a variety of
sources, including Federal budgets, State programs, and cost share
grants for non-Federal landowners, the academic community, and non-
governmental organizations. Additionally, pursuant to section 6 of the
Act, we would be able to grant funds to the CNMI for management actions
that promote the protection and recovery of these two plant species.
Information on the Service's grant programs that are available to aid
species recovery can be found on our Web site at: http://endangered.fws.gov/grants/index.html.
In the event that our internet
connection is inaccessible, please check http://www.grants.gov or check with
our grants contact at U.S. Fish and Wildlife Service, Ecological
Services, 911 NE 11th Avenue, Portland, OR 97232-4181 (telephone 503/
231-2063; FAX 503/231-6243).
For additional information on available conservation measures,
refer to Summary of Factors Affecting the Species, B.
Please let us know if you are interested in participating in
recovery efforts for Nesogenes rotensis and Osmoxylon mariannense (see
FOR FURTHER INFORMATION CONTACT section). Additionally, we invite you
to submit any further information on these species whenever it becomes
available or other information you may have for species' recovery
planning purposes (see FOR FURTHER INFORMATION CONTACT section).
Section 7(a) of the Act, as amended, requires Federal agencies to
evaluate their actions with respect to any species that is proposed or
listed as endangered or threatened, and with respect to its critical
habitat if any is being designated. Regulations implementing this
interagency cooperation provision of the Act are codified at 50 CFR
part 402. Section 7(a)(2) of the Act requires Federal agencies to
ensure that activities they authorize, fund, or carry out are not
likely to jeopardize the continued existence of the species or destroy
or adversely modify its critical habitat if any has been designated. If
a Federal action may affect a listed species or its critical habitat,
the responsible Federal agency must enter into formal consultation with
us.
Federal agency actions that may require consultation for Nesogenes
rotensis and Osmoxylon mariannense include, but are not limited to:
Army Corps of Engineers projects, such as the construction of roads,
firebreaks, and bridges; various U.S. armed forces activities on the
northern Mariana Islands, such as combat and mobility training, and
construction; Natural Resources Conservation Service projects; Federal
Emergency Management Agency activities; and U.S. Department of Housing
and Urban Development projects. Federal actions not affecting the two
species, as well as actions on non-Federal lands that are not federally
funded or permitted, would not require section 7 consultation.
The Act and its implementing regulations set forth a series of
general prohibitions and exceptions that apply to all endangered
plants. All prohibitions of section 9(a)(2) of the Act implemented at
50 CFR 17.61 for endangered plants would apply. These prohibitions, in
part, make it illegal for any person subject to the jurisdiction of the
United States to import or export, transport in interstate or foreign
commerce in the course of a commercial activity, sell or offer for sale
these two species in interstate or foreign
[[Page 18506]]
commerce, or to remove the species from areas under Federal
jurisdiction. In addition, for plants listed as endangered, the Act
prohibits the malicious damage or destruction in areas under Federal
jurisdiction and the removal, cutting, digging up, damaging, or
destroying of such endangered plants in knowing violation of any State,
Commonwealth, or Territory law or regulation, or in the course of any
violation of State, Commonwealth, or Territory criminal trespass law.
Certain exceptions to the prohibitions apply to any employee or agent
of the Service, any other Federal land management agency, or a State
conservation agency (50 CFR 17.61(c)(2)-(4)).
The Act and 50 CFR 17.62 and 17.63 also provide for the issuance of
permits to carry out otherwise prohibited activities involving
endangered plant species under certain circumstances. Such permits are
available for scientific purposes, to enhance the propagation or
survival of the species. We anticipate that the only permits that would
be sought or issued would be in association with recovery efforts as
these two species are not common in cultivation or the wild.
It is our policy, published in the Federal Register on July 1, 1994
(59 FR 34272), to identify, to the maximum extent practicable at the
time a species is listed, those activities that are likely to
constitute a violation of section 9 of the Act. The intent of this
policy is to increase public awareness of the effects of the listing on
proposed and ongoing activities within a species' range.
We believe the following activities could potentially result in a
violation of section 9; however, possible violations are not limited to
these actions alone: collection (including scientific collection absent
authorization by the Service), damage, or destruction of Nesogenes
rotensis or Osmoxylon mariannense on non-Federal lands if conducted in
knowing violation of CNMI law or regulations, including CNMI criminal
trespass law. In addition, possible violations include importing or
exporting these species, and selling or shipping specimens in
interstate or foreign commerce in the course of commercial activity.
We will review other activities not identified above on a case-by-
case basis to determine whether they may be likely to result in a
violation of section 9 of the Act. We do not consider these lists to be
exhaustive and provide them as information to the public. You should
direct questions regarding whether specific activities would constitute
a violation of section 9 to the Field Supervisor of the Pacific Islands
Fish and Wildlife Office (see FOR FURTHER INFORMATION CONTACT section).
You may request copies of the regulations regarding listed plants
and address questions about prohibitions and permits to the U.S. Fish
and Wildlife Service, Ecological Services, Permits Branch, 911 NE 11th
Avenue, Portland OR 97232-4181 (telephone 503/231-2063; FAX 503/231-
6243).
National Environmental Policy Act
We have determined that environmental assessments and environmental
impact statements, as defined in the National Environmental Policy Act
of 1969, need not be prepared in connection with regulations adopted
pursuant to section 4(a) of the Act. We published a notice outlining
our reasons for this determination in the Federal Register on October
25, 1983 (48 FR 49244).
Civil Justice Reform
In accordance with Executive Order 12988, the Department of the
Interior's Office of the Solicitor has determined that this rule does
not unduly burden the judicial system and does meet the requirements of
sections 3(a) and 3(b)(2) of the Order. We have listed Nesogenes
rotensis and Osmoxylon mariannense as endangered species in accordance
with the provisions of the Endangered Species Act.
Paperwork Reduction Act
This rule does not contain any new collections of information that
require approval by the Office of Management and Budget (OMB) under the
Paperwork Reduction Act (44 U.S.C. 3501 et seq.). This rule will not
impose record keeping or reporting requirements on State or local
governments, individuals, businesses, or organizations. An agency may
not conduct or sponsor, and a person is not required to respond to, a
collection of information unless it displays a currently valid OMB
control number. The existing OMB control number is 1018-0094 and
expires July 31, 2004.
References Cited
A complete list of all references cited in this rulemaking is
available upon request from the Pacific Islands Fish and Wildlife
Office (See FOR FURTHER INFORMATION CONTACT section.)
Author
The primary authors of this final rule are the staff of the Fish
and Wildlife Service (see FOR FURTHER INFORMATION CONTACT section).
List of Subjects in 50 CFR Part 17
Endangered and threatened species, Exports, Imports, Reporting and
record-keeping requirements, Transportation.
Regulation Promulgation
0
Accordingly, we amend part 17, subchapter B of chapter I, title 50 of
the Code of Federal Regulations, as set forth below:
PART 17--[AMENDED]
0
1. The authority citation for part 17 continues to read as follows:
Authority: 16 U.S.C. 1361-1407; 16 U.S.C. 1531-1544; 16 U.S.C.
4201-4245; Pub. L. 99-625, 100 Stat. 3500; unless otherwise noted.
0
2. Section 17.12(h) is amended by adding the following, in alphabetical
order under FLOWERING PLANTS, to the List of Endangered and Threatened
Plants:
Sec. 17.12 Endangered and threatened plants.
* * * * *
(h) * * *
--------------------------------------------------------------------------------------------------------------------------------------------------------
Species
---------------------------------------------------------- Historic range Family Status When Critical Special
Scientific name Common name listed habitat rules
--------------------------------------------------------------------------------------------------------------------------------------------------------
Flowering Plants
* * * * * * *
Nesogenes rotensis................ None................. Western Pacific Verbenaceae--Verbena E 742 NA NA
Ocean--U.S.A. family.
(Commonwealth of the
Northern Mariana
Islands).
[[Page 18507]]
* * * * * * *
Osmoxylon mariannense............. None................. Western Pacific Araliaceae--Ginseng E 742 NA NA
Ocean--U.S.A. family.
(Commonwealth of the
Northern Mariana
Islands).
* * * * * * *
--------------------------------------------------------------------------------------------------------------------------------------------------------
Dated: April 1, 2004.
Marshall Jones,
Deputy Director, Fish and Wildlife Service.
[FR Doc. 04-7934 Filed 4-7-04; 8:45 am]
BILLING CODE 4310-55-P