[Federal Register Volume 59, Number 217 (Thursday, November 10, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-27301]


[[Page Unknown]]

[Federal Register: November 10, 1994]


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Part VII





Department of the Interior





_______________________________________________________________________



Fish and Wildlife Service



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50 CFR Part 17




Endangered and Threatened Wildlife and Plants; Endangered Status for 
the Plant Mann's Bluegrass; Final Rules
DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service

50 CFR Part 17

RIN 1018-AB97

 
Endangered and Threatened Wildlife and Plants; Endangered Status 
for the Plant Poa Mannii (Mann's Bluegrass)

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Final rule.

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SUMMARY: The U.S. Fish and Wildlife Service (Service) designates 
endangered status pursuant to the Endangered Species Act of 1973, as 
amended (Act), for the plant Poa mannii (Mann's bluegrass). Four extant 
populations containing a total of approximately 125 individuals of the 
species are known to occur in the northwestern and north-central region 
of the island of Kauai. The species and its habitat are threatened by 
goats, competition by naturalized, introduced vegetation, fire, 
landslides, and erosion. The existence of few populations and 
individuals increases the likelihood of extinction from stochastic 
events and/or reduced reproductive vigor.
    This final rule implements the Federal protection provisions 
provided by the Act.

EFFECTIVE DATE: December 12, 1994.

ADDRESSES: The complete file for this final rule is available for 
public inspection, by appointment, during normal business hours, at the 
U.S. Fish and Wildlife Service, Pacific Islands Office, 300 Ala Moana 
Boulevard, Room 6307, P.O. Box 50167, Honolulu, Hawaii 96850.

FOR FURTHER INFORMATION CONTACT: Robert P. Smith, Field Supervisor, at 
the above address (808/541-2749).

SUPPLEMENTARY INFORMATION:

Background

    Poa mannii was first collected by Horace Mann, Jr., and William 
Tufts Brigham in 1864 or 1865 in Waimea Canyon on the island of Kauai. 
The name Poa mannii was published without a description (attributed to 
William Munro) in Seemann's Journal of Botany in 1869. The specific 
epithet was selected to honor one of the original collectors. 
Subsequently, the species was validly published by Hillebrand (1888) in 
his flora.
    Poa mannii of the grass family (Poaceae) is a perennial with short 
rhizomes (underground stems) and erect, tufted culms (bunched stems) 50 
to 75 centimeters (cm) (20 to 30 inches (in)) tall. The leaf sheath 
completely surrounds the leaf, and the ligule (appendage at the 
junction of the leaf blade and sheath) completely encircles the stem, 
is about 0.5 millimeters (mm) (0.02 in) long, and has a tooth about 2 
to 4 mm (0.08 to 0.2 in) long and a fringed margin. The leaf blade is 
up to 15 cm (6 in) long and 2 to 4 mm (0.08 to 0.2 in) wide, and has a 
rough upper surface and a hairless lower surface. The panicles 
(branched flower clusters) are usually less than 5 cm (2 in) long and 
have primary branches 5 to 20 mm (0.2 to 0.8 in) long. The 4 to 7 mm 
(0.2 to 0.3 in) long, flattened spikelets (ultimate flower clusters) 
are pale greenish or yellowish brown and usually are comprised of 4 or 
5 flowers. The glumes (small pair of bracts at the base of each 
spikelet) are about 3 mm (0.1 in) long. The lemma (outer bract at the 
base of a floret) is 3 to 4 mm (0.1 to 0.2 in) long and has cobwebby 
hairs at its base. The palea (inner bract at the base of a floret) is 3 
to 3.5 mm (about 0.1 in) long and has a sharp, longitudinal ridge. The 
reddish brown grain-like fruit is elliptical to spindle-shaped and 
about 1.5 mm (0.06 in) long. All three native species of Poa in the 
Hawaiian Islands are endemic to the island of Kauai. Poa mannii is 
distinguished from both Poa siphonoglossa and Poa sandvicensis by its 
fringed ligule and from Poa sandvicensis by its shorter panicle 
branches (O'Connor 1990).
    Poa mannii is found only on the northwestern and west-central 
portions of the island of Kauai. The four known populations extend over 
a distance of about 10.5 by 8.5 kilometers (km) (6.5 by 5.3 miles (mi)) 
and are found in Kalalau, Makaha, Koaie, and Waialae Valleys, all on 
State lands (David Lorence, National Tropical Botanical Garden, pers. 
comm., 1992). The species was formerly found in Olokele Gulch (O'Connor 
1990). Approximately 125 individuals have been observed in the extant 
populations. This species typically grows on cliffs and rock faces at 
elevations between 460 and 1,150 meters (m) (1,510 and 3,770 feet (ft)) 
in lowland and montane mesic forests. Associated species include: 
Chamaesyce sp. ('akoko), Exocarpos luteolus (heau), Labordia helleri 
(kamakahala), and Nototrichium sp. in Kalalau Valley; Cyrtandra wawrae 
(ha'iwale) in Makaha Valley; Acacia koa (koa), Alectryon macrococcus 
(mahoe), and Antidesma platyphyllum (hame) in Koaie Valley; and Bidens 
cosmoides (po'ola nui), Carex meyenii, Dodonaea viscosa ('a'ali'i), and 
Schiedea amplexicaulis in Waialae Valley. Threats to Poa mannii include 
habitat damage, trampling, and browsing by feral goats (Capra hircus); 
competition with invasive alien plants, especially Erigeron 
karvinskianus (daisy fleabane), Lantana camara (lantana), and Rubus 
argutus (prickly Florida blackberry); landslides in the steep habitat; 
fire; and reduced reproductive vigor and/or extinction from stochastic 
events due to the small number of existing populations and individuals 
(D. Lorence and Ken Wood, Hawaii Plant Conservation Center, pers. 
comms., 1992).

Previous Federal Action

    Federal action on Poa mannii began as a result of section 12 of the 
Act, which directed the Secretary of the Smithsonian Institution to 
prepare a report on plants considered to be endangered, threatened, or 
extinct in the United States. This report, designated as House Document 
No. 94-51, was presented to Congress on January 9, 1975. On July 1, 
1975, the Service published a notice in the Federal Register (40 FR 
27823) of its acceptance of the Smithsonian report as a petition within 
the context of section 4(c)(2) (now section 4(b)(3)) of the Act, and 
giving notice of its intention to review the status of the plant taxa 
named therein. As a result of that review, on June 16, 1976, the 
Service published a proposed rule in the Federal Register (41 FR 24523) 
to determine endangered status pursuant to section 4 of the Act for 
approximately 1,700 vascular plant species. The list of 1,700 plant 
taxa was assembled on the basis of comments and data received by the 
Smithsonian Institution and the Service in response to House Document 
No. 94-51 and the July 1, 1975, Federal Register publication. General 
comments received in response to the 1976 proposal are summarized in an 
April 26, 1978, Federal Register publication (43 FR 17909). In 1978, 
amendments to the Act required that all proposals over two years old be 
withdrawn. A one-year grace period was given to proposals already over 
two years old. On December 10, 1979, the Service published a notice in 
the Federal Register (44 FR 70796) withdrawing the portion of the June 
16, 1976, proposal that had not been made final, including Poa mannii, 
along with four other proposals that had expired. The Service published 
updated notices of review for plants on December 15, 1980 (45 FR 
82479), September 27, 1985 (50 FR 39525), and February 21, 1990 (55 FR 
6183). Poa mannii was first included in the 1980 and 1985 notices of 
review as a category 1 species. Category 1 taxa are those for which the 
Service has on file substantial information on biological vulnerability 
and threats to support preparation of listing proposals. In the 1990 
notice of review, Poa mannii was considered a category 1* species. 
Category 1* taxa are those which are possibly extinct. Since the 1990 
notice of review, three previously unknown populations of the species 
have been discovered, and a population has been found in an area in 
which the plant was formerly known.
    Section 4(b)(3)(B) of the Act requires the Secretary to make 
findings on petitions that present substantial information indicating 
that the petitioned action may be warranted within 12 months of their 
receipt. Section 2(b)(1) of the 1982 amendments further required all 
petitions pending on October 13, 1982, be treated as having been newly 
submitted on that date. On October 13, 1983, the Service found that the 
petitioned listing of Poa mannii was warranted, but precluded by other 
pending listing actions, in accordance with section 4(b)(3)(B)(iii) of 
the Act; notification of this finding was published on January 20, 1984 
(49 FR 2485). Such a finding requires the Service to consider the 
petition as having been resubmitted pursuant to section 4(b)(3)(C)(i) 
of the Act. The finding was reviewed in October of 1984, 1985, 1986, 
1987, 1988, 1989, 1990, and 1991. Publication of the proposed rule 
constituted the final 1-year finding for this species.
    On April 7, 1993, the Service published in the Federal Register (58 
FR 18073) a proposal to list the plant Poa mannii as endangered. This 
proposal was based primarily on information supplied by Hawaii State 
Department of Land and Natural Resources unpublished reports and 
observations by botanists and naturalists. The Service now determines 
Poa mannii to be endangered with the publication of this rule.

Summary of Comments and Recommendations

    In the April 7, 1993, proposed rule and associated notifications, 
all interested parties were requested to submit factual reports or 
information that might contribute to the development of a final rule. 
The public comment period ended June 7, 1993. Appropriate State 
agencies, county governments, Federal agencies, scientific 
organizations, and other interested parties were contacted and 
requested to comment. A newspaper notice inviting public comment was 
published in ``The Honolulu Advertiser'' on May 12, 1993, and ``The 
Garden Isle'' on May 16, 1993. No letters of comment were received.

Summary of Factors Affecting the Species

    Section 4 of the Endangered Species Act (16 U.S.C. 1533) and 
regulations (50 CFR Part 424) promulgated to implement the Act set 
forth the procedures for adding species to the Federal Lists. A species 
may be determined to be an endangered species due to one or more of the 
five factors described in section 4(a)(1). These factors and their 
application to Poa mannii Munro ex Hillebr. (Mann's bluegrass) are as 
follows:

A. The Present or Threatened Destruction, Modification, or Curtailment 
of Its Habitat or Range

    The area of Kauai in which Poa mannii is found has undergone 
extreme alteration because of past and present land management 
practices, including grazing, deliberate alien plant and animal 
introductions, water diversion, and recreational development (Wagner et 
al. 1985). Feral animals have had the greatest overall impact, altering 
and degrading the vegetation and habitats of the area; feral goats 
currently cause the greatest damage to the area.
    Feral goats, which have inhabited the drier, more rugged areas of 
Kauai since the 1820s, consume native vegetation, trample roots and 
seedlings, cause erosion, and promote the invasion of alien plants 
(Cuddihy and Stone 1990). Feral goats on Kauai are managed as a game 
species with a limited hunting season (Tomich 1986), but their numbers 
are large enough to cause considerable habitat damage. Poa mannii 
survives only in very steep areas that are inaccessible to goats, 
suggesting that goat predation may have eliminated this species from 
more accessible locations, as is the case for other rare plants from 
northwestern Kauai (Corn et al. 1979). Populations of Poa mannii are 
affected by erosion and landslides, resulting, in part, from goat 
activities in surrounding areas (K. Wood, pers. comm., 1992).

B. Overutilization for Commercial, Recreational, Scientific, or 
Educational Purposes

    Unrestricted collecting for scientific or horticultural purposes 
and excessive visits by individuals interested in seeing rare plants 
could result from increased publicity. This is a potential threat to 
Poa mannii that could also promote erosion and greater ingress by 
competing alien species.

C. Disease or Predation

    Poa mannii is not known to be unpalatable to goats, which inhabit 
the areas where all four known populations of Poa mannii grow. 
Predation is a probable reason that this species is currently found 
only on cliff faces inaccessible to goats (D. Lorence and K. Wood, 
pers. comms., 1992). Predation by goats constitutes a threat to the 
expansion of the extant populations of Poa mannii.

D. The Inadequacy of Existing Regulatory Mechanisms

    All four populations of Poa mannii are located on State 
conservation district land, which, among other purposes, are regarded 
as necessary for the protection of endemic biological resources and the 
maintenance or enhancement of the conservation of natural resources. 
Activities permitted in the conservation district are chosen by 
considering how best to make multiple use of the land (HRS, sect. 205-
2). Some uses, such as maintaining animals for hunting, are based on 
policy decisions, while others, such as preservation of endangered 
species, are mandated by both Federal and State laws. Requests for 
amendments to district boundaries or variances within existing 
classifications can be made by government agencies and private 
landowners (HRS, sect. 205-4). Before decisions on these requests are 
made, the impact of the proposed reclassification on ``preservation or 
maintenance of important natural systems or habitat'' (HRS, sects. 205-
4, 205-17), as well as the maintenance of natural resources, is 
required to be taken into account (HRS, sects. 205-2, 205-4). For any 
proposed land use change that would occur on county or State land, that 
would be funded in part or whole by county or State funds, or that 
would occur within land classified as conservation district, an 
environmental assessment is required to determine whether or not the 
environment will be significantly affected (HRS, chapt. 343). If it is 
found that an action will have a significant effect, preparation of a 
full Environmental Impact Statement is required. Hawaii environmental 
policy and, thus, approval of land use, is required by law to safeguard 
``* * * the State's unique natural environmental characteristics * * 
*'' (HRS, sect. 344-3(1)) and includes guidelines to ``protect 
endangered species of individual plants and animals * * *'' (HRS, sect. 
344-4(3)(A)). However, the species is not presently protected as an 
endangered species under the State's endangered species provisions, 
and, despite provisions for conserving endemic resources, individual 
rare species may be overlooked during consideration of other land use 
priorities.

E. Other Natural or Manmade Factors Affecting Its Continued Existence

    The existence of only four populations consisting of approximately 
125 individuals of Poa mannii increases the potential for extinction 
from stochastic events. The limited gene pool may depress reproductive 
vigor, or a single human-caused or natural environmental disturbance, a 
disease, or predation could destroy an entire population and a 
significant percentage of the known individuals of the species. In the 
steep areas where Poa mannii grows, erosion and landslides due to 
natural weathering can result in the death of individual plants as well 
as habitat destruction. This process especially affects the continued 
existence of species or populations with limited numbers and/or narrow 
ranges, such as Poa mannii, and can be exacerbated by human disturbance 
and land use practices.
    Competition by alien plant species is a threat to Poa mannii. 
Brought to Hawaii as a cultivated herbaceous plant, daisy fleabane has 
become naturalized in wetter regions of four islands (Wagner et al. 
1990). Daisy fleabane has invaded Kalalau, Koaie, and Waialae Valleys, 
three of the four areas where Poa mannii occurs (K. Wood, pers. comm., 
1992). Lantana, brought to Hawaii as an ornamental plant, is an 
aggressive, thicket-forming shrub that can now be found on all of the 
main islands in mesic forests, dry shrublands, and other dry, disturbed 
habitats (Wagner et al. 1990). Lantana threatens all known populations 
of Poa mannii (D. Lorence and K. Wood, pers. comms., 1992). Prickly 
Florida blackberry, an aggressive alien species in disturbed mesic to 
wet forests and subalpine grasslands on four islands, is considered a 
noxious weed by the State of Hawaii (Smith 1985, Wagner et al. 1990). 
Prickly Florida blackberry threatens the Kalalau and Waialae Valley 
populations of Poa mannii (K. Wood, pers. comm., 1992).
    Fire is considered an immediate threat to the rare plants of the 
cliff faces and valleys of the Na Pali Coast, where the largest known 
population of Poa mannii occurs. Under dry conditions, human-set fires 
would spread rapidly and could destroy these plants, due to the strong 
prevailing winds and dry fuel load on cliff ledges. Fire could destroy 
dormant seeds as well as plants, even on steep cliffs (Clarke and 
Cuddihy 1980).
    The Service has carefully assessed the best scientific and 
commercial information available regarding the past, present, and 
future threats faced by this species in finalizing this rule. Based on 
this evaluation, this rulemaking will list Poa mannii as endangered. 
This species numbers only approximately 125 individuals in four known 
extant populations. Threats to the continued existence of the species 
include habitat degradation and/or predation by goats, competition from 
alien plants, fire, landslides and erosion, and lack of legal 
protection or difficulty in enforcing laws that become effective with 
this listing action. Small population size and limited distribution 
make the species particularly vulnerable to extinction and/or reduced 
reproductive vigor from stochastic events. Because Poa mannii is in 
danger of extinction throughout all or a significant portion of its 
range, it fits the definition of endangered as defined in the Act.
    Critical habitat is not being proposed for Poa mannii for reasons 
discussed in the ``Critical Habitat'' section of this final rule.

Critical Habitat

    Section 4(a)(3) of the Act, as amended, requires that, to the 
maximum extent prudent and determinable, the Secretary designate 
critical habitat at the time a species is determined to be endangered 
or threatened. The Service finds that designation of critical habitat 
is not presently prudent for Poa mannii. The publication of a map and 
precise description of critical habitat in the Federal Register, as 
required in a designation of critical habitat, would increase the 
degree of threat to this species from take or vandalism and, therefore, 
could contribute to its decline. The listing of this species as 
endangered publicizes the rarity of the plant and, thus, can make it 
attractive to researchers, curiosity seekers, or collectors of rare 
plants. All involved parties and the major landowner have been notified 
of the location and importance of protecting the habitat of this 
species, which will be addressed through the recovery process and 
through the section 7 consultation process. There are no known Federal 
activities within the currently known natural habitat of this species. 
Therefore, the Service finds that designation of critical habitat for 
this species is not prudent at this time, because such designation 
would increase the degree of threat from vandalism, collecting, or 
other human activities and because it is unlikely to aid in the 
conservation of this species.

Available Conservation Measures

    Conservation measures provided to species listed as endangered 
under the Act include recognition, recovery actions, requirements for 
Federal protection, and prohibitions against certain activities. 
Listing encourages conservation actions by Federal, State, and local 
agencies, private organizations, and individuals. The Act provides for 
possible land acquisition and cooperation with the State and requires 
that recovery plans be developed for listed species. The requirement 
for 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 taxon that is proposed or 
listed as endangered 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 a listed 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 consultation with the Service. There are no known Federal 
activities that occur within the presently known habitat of Poa mannii.
    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 plant species. With respect to 
Poa mannii, 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 species to/from the United 
States; transport such species in interstate or foreign commerce in the 
course of a commercial activity; sell or offer for sale such species in 
interstate or foreign commerce; remove and reduce to possession any 
such species from areas under Federal jurisdiction; maliciously damage 
or destroy any such species on any area under Federal jurisdiction; or 
remove, cut, dig up, damage, or destroy any such species on any other 
area in knowing violation of any State law or regulation or in the 
course of any violation of a State criminal trespass law. Certain 
exceptions apply to agents of the Service and State conservation 
agencies. Section 10 of the Act and 50 CFR 17.62 also provide for the 
issuance of permits under certain circumstances to carry out activities 
involving endangered plants that are otherwise prohibited by section 9.
    It is the policy of the Service (59 FR 34272) to identify to the 
maximum extent practicable at the time a species is listed those 
activities that would or would not constitute a violation of section 9 
of the Act. Such information is intended to clarify the potential 
impacts of a species' listing on proposed and ongoing activities within 
the species' range. The four known populations of Poa mannii occur on 
cliffs and rock faces located on State lands. The Service is not aware 
of any otherwise legal activities proposed or being conducted by the 
public at this time that will be affected by this listing and result in 
a violation of section 9. Questions regarding whether specific 
activities will constitute a violation of section 9 should be directed 
to the Field Supervisor of the Service's Pacific Islands Office (see 
ADDRESSES section). Requests for copies of the regulations concerning 
listed plants and general inquiries regarding prohibitions and permits 
may be addressed to the U.S. Fish and Wildlife Service, Ecological 
Services, Endangered Species Permits, 911 N.E. 11th Avenue, Portland, 
Oregon 97232-4181 (503/231-2063; FAX 503/231-6243).

Hawaii State Law

    Federal listing will automatically invoke listing under the State's 
endangered species act. Hawaii's endangered species act states, ``Any 
species of aquatic life, wildlife, or land plant that has been 
determined to be an endangered species pursuant to the [Federal] 
Endangered Species Act shall be deemed to be an endangered species 
under the provisions of this chapter * * *'' (HRS, sect. 195D-4(a)). 
Therefore, Federal listing will accord the species listed status under 
Hawaii State law. State law prohibits cutting, collecting, uprooting, 
destroying, injuring, or possessing any listed species of plant on 
State or private land, or attempting to engage in any such conduct. 
State law also encourages conservation of such species by State 
agencies and triggers other State regulations to protect the species 
(HRS, sect. 195D-4 and 5). Two populations of Poa mannii occur in 
forest reserves, which have rules and regulations for the protection of 
resources. State law mandates the development and implementation of 
programs concerning the conservation of biological resources, including 
this endangered species (HRS, sect. 195D-5(a)).

National Environmental Policy Act

    The Fish and Wildlife Service has determined that an Environmental 
Assessment or Environmental Impact Statement, 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

    A complete list of all references cited herein is available, upon 
request, from the Field Supervisor, Pacific Islands Office (see 
ADDRESSES section).

Authors

    The authors of this rule are Marie M. Bruegmann and Zella E. 
Ellshoff of the Pacific Islands Office (see ADDRESSES section), (808/
541-3441).

List of Subjects in 50 CFR Part 17

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

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; Pub. L. 99-625, 100 Stat. 3500; unless otherwise noted.

    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, to read as follows:


Sec. 17.12  Endangered and threatened plants.

* * * * *
    (h) * * *

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                      Species                                                                                                                           
---------------------------------------------------      Historic range                Family             Status     When listed    Critical    Special 
     Scientific name             Common name                                                                                        habitat      rules  
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                                                                                        
    Flowering Plants                                                                                                                                    
                                                                                                                                                        
                                                                      * * * * * * *                                                                     
Poa mannii..............  Mann's bluegrass........  U.S.A. (HI).............  Poaceae................  E                     558           NA         NA
                                                                                                                                                        
                                                                      * * * * * * *                                                                     
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    Dated: September 9, 1994.
Mollie H. Beattie,
Director, Fish and Wildlife Service.
[FR Doc. 94-27301 Filed 11-9-94; 8:45 am]
BILLING CODE 4310-55-P