[Federal Register Volume 59, Number 174 (Friday, September 9, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-22367]


[[Page Unknown]]

[Federal Register: September 9, 1994]


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DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service

50 CFR Part 17

RIN 1018-AC17

 

Endangered and Threatened Wildlife and Plants; Determination of 
Endangered Status for Three Puerto Rican Plants

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Final rule.

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SUMMARY: The Service determines Mitracarpus maxwelliae (no common 
name), Mitracarpus polycladus (no common name), and Eugenia woodburyana 
(no common name) to be endangered species pursuant to the Endangered 
Species Act (Act) of 1973, as amended. M. maxwelliae, a small shrub, 
and E. woodburyana, a small evergreen tree, are endemic to southwestern 
Puerto Rico. M. polycladus is a small shrub found in the same general 
area of Puerto Rico as the other two species, but it also has been 
reported from one other island, Saba, in the Lesser Antilles. These 
species are variously threatened by road construction, recreational 
activities, wildfires, and land clearing associated with development 
for agriculture and other purposes. This final rule provides M. 
maxwelliae, M. polycladus and E. woodburyana with the Federal 
protection and recovery provisions afforded by the Act for listed 
species.

EFFECTIVE DATE: October 11, 1994.

ADDRESSES: The complete file for this rule is available for inspection, 
by appointment, during normal business hours, at the Caribbean Field 
Office, U.S. Fish and Wildlife Service, P.O. Box 491, Boqueron, Puerto 
Rico 00622; and at the Service's Southeast Regional Office, 1875 
Century Boulevard, Atlanta, Georgia 30345.

FOR FURTHER INFORMATION CONTACT: Ms. Susan Silander at the Caribbean 
Field Office address (809/851-7297) or Mr. Dave Flemming at the Atlanta 
Regional Office address (404/679-7096).

SUPPLEMENTARY INFORMATION:

Background

    Mitracarpus maxwelliae was discovered on March 8, 1925, by 
Nathaniel L. Britton on a limestone hill in the municipality of 
Guanica, Puerto Rico. The site was later rediscovered by Alain Liogier 
in 1982 and again by George R. Proctor and Miguel Canals in 1987. The 
species has never been found at any other location but the type 
locality. At this locality, it is found along an unpaved road, growing 
on dry exposed gravel. Approximately 1,443 plants, including mature 
flowering individuals and seedlings, were counted within an area of 
about 7,500 square meters (697 square feet) (Proctor 1991a).
    Mitracarpus maxwelliae is a low, densely-branching, moundlike shrub 
which may reach approximately 20 centimeters (8 inches (in)) in height. 
The somewhat woody branches are striate and sharply 4-angled. The 
leaves are opposite, sessile, linear or linear-lanceolate, densely 
scabrous, and from 1 to 3 centimeters (.4 to 1 in) long and 2 to 5 
millimeters (.01 to .2 in) wide. The flower heads are terminal, dense, 
sub-globose, and from .8 to 1.3 centimeters (.3 to .5 in) in diameter. 
The corolla is white, narrowly funnelform, minutely glandular-
papillose, 5 to 6 millimeters (.20 to .23 in) long. The capsule is 
about 1.5 millimeters (.06 in) in diameter, opening by a transverse 
circular split at about the middle. The seeds are ellipsoid, brownish-
black, and 1.2 millimeters (.05 in) long and .8 millimeter (.03 in) 
wide.
    Mitracarpus polycladus was first discovered growing on coastal 
rocks near Cana Gorda, Guanica, Puerto Rico, in 1886 by Paul Sintenis. 
It was also located on the island of Saba in the lesser Antilles by the 
Dutch botanist Boldingh (note: the table entry for the proposed rule 
did not include Saba in the historic range; the table is corrected for 
this final rule). Today it continues to be known from only these two 
locations, where it grows in crevices and soil pockets of coastal rocks 
in arid areas. Exact numbers of individuals have been difficult to 
estimate due to extreme drought conditions in recent years (Proctor 
1991b).
    Mitracarpus polycladus is a suffrutescent perennial. It is branched 
near the base, and the erect or spreading stems may reach up to 45 
centimeters (18 in) in height. The branches are 4-angled and glabrous. 
Leaves are opposite, linear to linear-lanceolate, 2 to 4.5 centimeters 
(.9 to 1.8 in) long, .3 to .5 centimeters (.12 to .20 in) wide, 
glabrous and often with an inrolled margin and decurrent base. The 
inflorescence is terminal and capitate, 8 to 13 millimeters (.31 to .51 
in) in diameter, many flowered and subtended by 3 bracht-like leaves. 
The corolla is white, about 5 millimeters (.20 in) long, with ovate 
leaves. The seed capsule is 1.5 millimeter (.06 in) in diameter, 
splitting open transversely below the middle, and contains black seeds.
    Eugenia woodburyana, a small evergreen tree, is endemic to Puerto 
Rico and currently known from only the Sierra Bermeja in the 
municipalities of Cabo Rojo and Lajas and from the Guanica Commonwealth 
Forest in Guanica, all in southwestern Puerto Rico. An additional 
individual has been reported from the Cabo Rojo National Wildlife 
Refuge, in Cabo Rojo, adjacent to the Sierra Bermeja. Approximately 45 
individuals are known from these three locations. The species was only 
recently discovered and described by Alain Liogier (Liogier 1980).
    Eugenia woodburyana may reach 6 meters (20.0 feet) in height. The 
leaves are opposite, obovate, pilose on both sides, glandular-punctate 
below, and from 1.5 to 2 centimeters (.6 to .8 in) long and 1 to 1.5 
(.4 to .6 in) centimeters wide. The inflorescence is axillary, 2 to 5 
flowered and with a peduncle 1 to 3 millimeters (.04 to .12 in) long. 
The calyx is 4-lobed and the petals are white, 4 millimeters (.12 in) 
long and 3.5 millimeters (.14 in) wide. The striking fruit is red upon 
maturity, 8-winged and 2 centimeters (.8 in) in diameter.

Previous Federal Action

    Mitracarpus maxwelliae and Mitracarpus polycladus were recommended 
for Federal listing in a report prepared by the Smithsonian Institution 
as directed by section 12 of the Endangered Species Act of 1973. The 
report was presented to Congress in 1975 as House Document No. 94-51. 
The species were subsequently included among the plants being 
considered as endangered or threatened by the Service, as published in 
the Federal Register notice of review dated December 15, 1980 (45 FR 
82480); the November 28, 1983 update (48 FR 53680), the revised notice 
of September 27, 1985 (50 FR 39526), and the February 21, 1990 (55 FR 
6184) notice of review. In the February 21, 1990, notice, M. maxwelliae 
was designated as a category 1 species (a species for which the Service 
has substantial information supporting the appropriateness of proposing 
to list them as endangered or threatened) and M. polycladus as a 
category 2 species (taxa for which there is some evidence of 
vulnerability, but for which there was not enough data to support 
listing). Eugenia woodburyana was included as a category 2 candidate 
for listing in the September 30, 1993, plant notice of review. It has 
been included in the Center for Plant Conservation's Report on Rare 
Plants in Puerto Rico (Center for Plant Conservation 1992) as a taxa 
which may become extinct within the next 10 years. All three species 
are considered to be critical plants by the Natural Heritage Program of 
the Puerto Rico Department of Natural Resources (Department of Natural 
Resources 1993).
    Based on status surveys reports completed in 1991, and in 
conjunction with other recent field work, the Service recently 
reclassified Mitracarpus polycladus and Eugenia woodburyana as category 
1 candidates.
    Section 4(b)(3)(B) of the Act, as amended in 1982, requires the 
Secretary to make findings on certain pending petitions within 12 
months of their receipt. Section 2(b)(1) of the 1982 Amendments further 
requires that all petitions pending on October 13, 1982, be treated as 
having been newly submitted on that date. This was the case for 
Mitracarpus maxwelliae and M. polycladus, because the Service had 
accepted the 1975 Smithsonian report as a petition. In each October 
from 1983 through 1992, the Service has found that the petitioned 
listing of these species was warranted but precluded by other listing 
actions of a higher priority, and that additional data on vulnerability 
and threats were still being gathered. A proposed rule to list M. 
maxwelliae, M. polycladus and Eugenia woodburyana, published on January 
3, 1994 (59 FR 44), constituted the final 1-year finding for the 
Mitracarpus species in accordance with Section 4(b)(3)(B)(ii) of the 
Act.

Summary of Comments and Recommendations

    In the January 3, 1994, proposed rule and associated notifications, 
all interested parties were requested to submit factual reports of 
information that might contribute to the development of a final rule. 
Appropriate agencies of the Commonwealth of Puerto Rico, Federal 
agencies, scientific organizations and other interested parties were 
contacted and requested to comment. A newspaper notice inviting general 
public comment was published in the ``San Juan Star'' on January 22, 
1994, and in ``El Dia'' on January 24, 1994. Two letters of comment 
were received, neither of which opposed the listing. The Puerto Rico 
Department of Natural and Environmental Resources supported the listing 
and provided additional information on threats to the species in the 
Sierra Bermeja. A public hearing was neither requested nor held.

Summary of Factors Affecting the Species

    After a thorough review and consideration of all information 
available, the Service has determined that Mitracarpus maxwelliae, M. 
polycladus and Eugenia woodburyana should be classified as endangered 
species. Procedures found at Section 4(a)(1) of the Endangered Species 
Act (16 U.S.C. 1531 et seq.) and regulations (50 CFR part 424) 
promulgated to implement the listing provisions of the Act were 
followed. A species may be determined to be endangered or threatened 
due to one or more of the five factors described in section 4(a)(1). 
These factors and their application to Mitracarpus maxwelliae Britton & 
Wilson, Mitracarpus polycladus Urban and Eugenia woodburyana Alain are 
as follows:
    A. The present or threatened destruction, modification, or 
curtailment of its habitat or range. In the Sierra Bermeja, Eugenia 
woodburyana is found on privately owned land subject to intense 
pressure for agricultural, rural and tourist development. The land is 
currently being cleared for grazing by cattle and goats. Adjacent land 
is being subdivided for sale in small farms, some destined for tourist 
and urban development. Off road vehicles used in these areas may affect 
seedling recruitment. All three species are also found within the 
Guanica Commonwealth Forest; however, Mitracarpus maxwelliae and 
Mitracarpus polycladus are found along infrequently used roadways where 
they may be impacted in the future. Any road improvement, widening, or 
increase in traffic along these roads would result in the loss of a 
significant portion of the only known populations. The sites of these 
two species are near preferred recreational areas, heavily utilized 
during the summer months.
    B. Overutilization for commercial, recreational, scientific, or 
educational purposes. Taking plants for these purposes has not been a 
documented factor in the decline of these species.
    C. Disease or predation. Disease and predation have not been 
documented as factors in the decline of these species.
    D. The inadequacy of existing regulatory mechanisms. The 
Commonwealth of Puerto Rico has adopted a regulation that recognizes 
and provides protection for certain Commonwealth listed species. 
However, Mitracarpus maxwelliae, Mitracarpus polycladus and Eugenia 
woodburyana are not yet on the Commonwealth list. Federal listing will 
provide immediate protection under the Act, and by virtue of an 
existing Section 6 Cooperative Agreement with the Commonwealth, listing 
will also assure the addition of these species to the Commonwealth list 
and enhance funding possibilities for recovery actions.
    E. Other natural or manmade factors affecting its continued 
existence. One of the most important factors affecting the continued 
survival of these species is their limited distribution. Because so few 
individuals are known to occur in a limited area, the risk of 
extinction is extremely high. Wildfires are a frequent occurrence in 
this extremely dry portion of southwestern Puerto Rico, particularly in 
the coastal roadside areas of Guanica where Mitracarpus maxwelliae and 
M. polycladus are found.
    The Service has carefully assessed the best scientific and 
commercial information available regarding the past, present, and 
future threats faced by these species in determining to make this rule 
final. Based on this evaluation, the preferred action is to list 
Mitracarpus maxwelliae, M. polycladus and Eugenia woodburyana as 
endangered. In U.S. territory, M. maxwelliae and M. polycladus are 
known from only one location in the Guanica area of southwestern Puerto 
Rico. In this area they are threatened by road construction, 
recreational activities and wildfires. E. woodburyana is known from 
only approximately 45 individuals at three locations in southwestern 
Puerto Rico. Deforestation for rural, agricultural, and tourist 
development are imminent threats to the survival of the species. 
Therefore, endangered rather than threatened status seems an accurate 
assessment of the species' condition. The reasons for not proposing 
critical habitat for these species are discussed below in the 
``Critical Habitat'' section.

Critical Habitat

    Section 4(a)(3) of the Act, as amended, requires that, to the 
maximum extent prudent and determinable, the Secretary propose critical 
habitat at the time the species is proposed to be endangered or 
threatened. Service regulations (50 CFR 424.12(a)(1)) state that the 
designation of critical habitat is not prudent when one or both of the 
following situations exist--(1) The species is threatened by taking or 
other human activity, and identification of critical habitat can be 
expected to increase the degree of such threat to the species, or (2) 
such designation of critical habitat would not be beneficial to the 
species. Both situations apply to Mitracarpus maxwelliae, Mitracarpus 
polycladus and Eugenia woodburyana.
    Critical habitat would not be beneficial in terms of adding 
additional protection for the species under section 7 of the Act. 
Regulations promulgated for the implementation of section 7 provide for 
both a ``jeopardy'' standard and a ``destruction or adverse 
modification'' of critical habitat standard. Because of the highly 
limited distribution of these species and their precarious status, any 
Federal action that would destroy or have any significant adverse 
affect on their habitat would likely result in a jeopardy biological 
opinion under section 7. Under these conditions, no additional benefits 
would accrue from designation of critical habitat that would not be 
available through listing alone.
    The Service also finds that designation of critical habitat is not 
prudent for these species due to the potential for taking. The number 
of individuals of Mitracarpus maxwelliae, Mitracarpus polycladus and 
Eugenia woodburyana is sufficiently small that vandalism and collection 
could seriously affect the survival of the species. Publication of 
critical habitat descriptions and maps in the Federal Register would 
increase the likelihood of such activities. The Service believes that 
Federal involvement in the areas where these plants occur can be 
identified without the designation of critical habitat. All involved 
parties and landowners have been notified of the location and 
importance of protecting these species' habitat. Protection of these 
species' habitat will also be addressed through the recovery process 
and through the Section 7 jeopardy standard.

Available Conservation Measures

    Conservation measures provided to species listed as endangered or 
threatened under the Endangered Species Act include recognition, 
recovery actions, requirements for Federal protection, and prohibitions 
against certain practices. Recognition through listing encourages and 
results in conservation actions by Federal, Commonwealth, and private 
agencies, groups and individuals. The Endangered Species Act provides 
for possible land acquisition and cooperation with the Commonwealth, 
and requires that recovery actions be carried out for all listed 
species. Such actions are initiated by the Service following listing. 
The protection required of Federal agencies and the prohibitions 
against certain activities involving listed plants are discussed, in 
part, below.
    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) requires Federal agencies to ensure that 
activities they authorize, fund, or carry out are not likely to 
jeopardize the continued existence of such a species or to destroy or 
adversely modify its critical habitat. If a Federal action may affect a 
listed species or its critical habitat, the responsible Federal agency 
must enter into formal consultation with the Service. No critical 
habitat is being proposed for these three species, as discussed above.
    The only currently known Federal involvement is through the 
occurrence of Eugenia woodburyana on the Cabo Rojo National Wildlife 
Refuge. Other Federal involvement may occur in the future through the 
funding of housing (Farmer's Home Administration or Housing and Urban 
Development) or funding utilized for the management of the Guanica 
Commonwealth Forest (U.S. Department of Agriculture, Forest Service).
    The Act and its implementing regulations found at 50 CFR 17.61, 
17.62, and 17.63 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 by 50 CFR 17.61, would apply. 
These prohibitions, in part, make it illegal for any person subject to 
the jurisdiction of the United States to import or export any 
endangered plant, transport it in interstate or foreign commerce in the 
course of commercial activity, sell or offer it for sale in interstate 
or foreign commerce, or remove it from areas under Federal jurisdiction 
and reduce it to possession. In addition, for endangered plants, the 
1988 amendments (Pub. L. 100-478) to the Act prohibit the malicious 
damage or destruction on Federal lands and the removal, cutting, 
digging up, or damaging or destroying of endangered plants in knowing 
violation of any Commonwealth law or regulation, including Commonwealth 
criminal trespass law. Certain exceptions apply to agents of the 
Service and Commonwealth conservation agencies.
    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 species under certain circumstances. It is anticipated that 
few permits for these three species will ever be sought or issued, 
since the species are not known to be in cultivation and are uncommon 
in the wild. Requests for copies of the regulations on listed plants 
and inquiries regarding prohibitions and permits should be addressed to 
the U.S. Fish and Wildlife Service, Attn: Endangered and Threatened 
Species Permits, 1875 Century Boulevard, Suite 200, Atlanta, Georgia 
30345 (404/697-4000).

National Environmental Policy Act

    The Fish and Wildlife Service has determined that an Environmental 
Assessment, as defined under the authority of the National 
Environmental Policy Act of 1969, need not be prepared in connection 
with regulations adopted pursuant to section 4(a) of the Endangered 
Species Act of 1973, as amended. A notice outlining the Service's 
reasons for this determination was published in the Federal Register on 
October 25, 1983 (48 FR 49244).

References Cited

Center for Plant Conservation. 1992. Report on the rare plants of 
Puerto Rico. Missouri Botanical Garden, St. Louis, Missouri.
Department of Natural Resources. 1993. Natural Heritage Program 
status information on Mitracarpus maxwelliae, Mitracarpus polycladus 
and Eugenia woodburyana. San Juan, Puerto Rico.
Liogier, Alain H. 1980. Novitates Antillanae. VIII. Phytologia 
47(3):167-198.
Proctor, G. R. 1991a. Status report on Mitracarpus maxwelliae 
Britton & Wilson. In Publicacion Cientifica Miscelanea No. 2, 
Departamento de Recursos Naturales de Puerto Rico. 196 pp.
Proctor, G. R. 1991b. Status report on Mitracarpus polycladus Urban. 
In Publicacion Cientifica Miscelanea No. 2, Departamento de Recursos 
Naturales de Puerto Rico. 196 pp.

Author
    The primary author of this final rule is Ms. Susan Silander, 
Caribbean Field Office, U.S. Fish and Wildlife Service, P.O. Box 
491, Boqueron, Puerto Rico 00622 (809/851-7297).

List of Subjects in 50 CFR Part 17

    Endangered and threatened species, Exports, Imports, Reporting and 
recordkeeping requirements, and Transportation.

Proposed Regulation Promulgation

    Accordingly, part 17, subchapter B of chapter I, title 50 of the 
Code of Federal Regulations is amended as set forth below:

PART 17--[AMENDED]

    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; Public Law 99-625, 100 Stat. 3500; unless otherwise 
noted.

    2. Amend Section 17.12(h) by adding the following, in alphabetical 
order, under Myrtaceae and Rubiaceae, to the List of Endangered and 
Threatened Plants, to read as follows:


Sec. 17.12  Endangered and threatened plants.

* * * * *
    (h) * * *

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                  Species                                                                                       
-------------------------------------------    Historic range      Status    When listed    Critical    Special 
   Scientific name         Common name                                                      habitat      rules  
----------------------------------------------------------------------------------------------------------------
                                                                                                                
                                                  * * * * * * *                                                 
Myrtaceae--Myrtle                                                                                               
 family:                                                                                                        
    Eugenia           None................  U.S.A. (PR)........  E                   551           NA         NA
     woodburyana.                                                                                               
                                                                                                                
                                                  * * * * * * *                                                 
Rubiaceae--Madder                                                                                               
 family:                                                                                                        
                                                                                                                
                                                  * * * * * * *                                                 
    Mitracarpus       None................  U.S.A. (PR)........  E                   551           NA         NA
     maxwelliae .                                                                                               
    Mitracarpus       None................  U.S.A. (PR), Lesser  E                   551           NA         NA
     polycladus.                             Antilles (Saba).                                                   
                                                                                                                
                                                  * * * * * * *                                                 
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    Dated: August 26, 1994.
Mollie H. Beattie,
Director, Fish and Wildlife Service.
[FR Doc. 94-22367 Filed 9-8-94; 8:45 am]
BILLING CODE 4310-55-P