[Federal Register Volume 59, Number 232 (Monday, December 5, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-29729]


[[Page Unknown]]

[Federal Register: December 5, 1994]


=======================================================================
-----------------------------------------------------------------------

DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service

50 CFR Part 17

RIN 1018-AB97

 

Endangered and Threatened Wildlife and Plants; Endangered Status 
for Three Hawaiian Plant Species of the Genus Melicope

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Final rule.

-----------------------------------------------------------------------

SUMMARY: The U.S. Fish and Wildlife Service (Service) designates 
endangered status pursuant to the Endangered Species Act of 1973, as 
amended (Act), for three plants in the genus Melicope (alani): M. 
adscendens, M. balloui, and M. ovalis. All three species are endemic to 
the slopes of Haleakala on the island of Maui, Hawaiian Islands. The 
three plant species and their habitats have been variously affected or 
are currently threatened by habitat degradation and damage to plants by 
feral and domestic animals (cattle and/or pigs), and/or by competition 
for space, light, water, and nutrients by naturalized, introduced 
vegetation. Due to the small number of existing individuals and their 
very narrow distributions, these species and their populations are 
vulnerable to reduced reproductive vigor and/or an increased likelihood 
of extinction from stochastic events. This final rule implements the 
Federal protection and recovery provisions provided by the Act.

EFFECTIVE DATE: January 4, 1995.

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

    Melicope adscendens, M. balloui, and M. ovalis, members of the 
citrus family (Rutaceae), are endemic to the slopes of Haleakala on the 
island of Maui, Hawaiian Islands. The island of Maui comprises remnants 
of two large shield volcanoes, the older West Maui Volcano on the west 
and the larger and much younger Haleakala Volcano on the east. These 
two volcanoes and the connecting isthmus formed by lava flows make up 
an island 1,888 square kilometers (sq km) (729 sq miles (mi)) in area. 
Haleakala, on East Maui, erupted just 200 years ago and has an 
elevation of 3,055 meters (m) (10,023 feet (ft)). Haleakala still 
retains its classic shield shape and has somewhat less diverse 
vegetation than the older and more eroded West Maui Mountains. Rainfall 
on Haleakala averages about 890 centimeters (cm) (350 inches (in)) per 
year, with the mountain's windward (northeastern) slope receiving the 
most precipitation. However, Haleakala's inner crater is a dry cinder 
desert because it is above the level at which precipitation develops 
and is sheltered from moisture-laden winds (Gagne and Cuddihy 1990).
    Melicope adscendens occurs in Nestegis sandwicensis (Olopua) 
Lowland Mesic Forest. This vegetation type, which includes co-dominant 
Pleomele auwahiensis (hala pepe), now exists as scattered patches, much 
of the original area having been converted to pasture land. This forest 
occurs between the elevations of 30 and 1,600 m (100 and 5,250 ft). 
Rain falls mostly from October to March, and substrates are well-
drained. Melicope balloui and M. ovalis occur in Acacia koa/
Metrosideros polymorpha (Koa/'Ohi'a) Montane Wet Forest. This plant 
community occurs between the elevations of 1,200 and 2,200 m (3,900 and 
7,200 ft). Annual rainfall is over 2,500 millimeters (mm) (98 in) and 
is evenly distributed throughout the year. The climate is warm, and 
frequent afternoon fog often results in fog drip. Substrates are 
volcanic with well developed soil. This is a highly stratified 
community, comprising, in order of canopy height: koa (up to 40 m 
tall); 'ohi'a (up to 30 m tall); several native tree species (10 to 20 
m tall); Cibotium (hapu'u) (understory canopy); and shrubs, herbs, 
ferns, and mosses (shade-tolerant understory) (Gagne and Cuddihy 1990; 
Hawaii Heritage Program (HHP) 1992a, 1992c, 1992d, 1992f).
    The only known extant population of Melicope adscendens and one of 
two populations of M. balloui are located on privately owned land. The 
only known extant population of M. ovalis and the second population of 
M. balloui are in Haleakala National Park, which is owned by the 
Federal Government (HHP 1992a, 1992c, 1992d, 1992f).

Discussion of the Three Species

    Melicope adscendens was first collected by Charles Noyes Forbes at 
Auwahi on the southwestern slopes of Haleakala in 1920. Harold St. John 
and Edward P. Hume (St. John 1944) later named and described the 
species as Pelea adscendens, choosing the specific epithet to describe 
the habit of the plant. Thomas G. Hartley and Benjamin C. Stone (1989, 
Stone et al. 1990, Wagner et al. 1990) synonymized the genus Pelea with 
Melicope, resulting in M. adscendens, the current name for this 
species.
    Melicope adscendens is a sprawling shrub with long, slender 
branches covered with gray hairs when young and becoming hairless when 
older. New growth is covered with many fine, yellowish to golden brown 
hairs. The opposite, widely spaced, leathery to papery, elliptic leaves 
measure 1.5 to 6.5 cm (0.6 to 2.6 in) long and 1 to 4 cm (0.4 to 1.6 
in) wide and have petioles 0.6 to 1.6 cm (0.2 to 0.6 in) long. Both 
upper and lower surfaces of mature leaves are hairless. Each flower 
cluster is on a main stalk 13 to 17 mm (0.5 to 0.7 in) long and 
comprises one to three flowers on individual stalks usually 4 to 8 mm 
(0.2 to 0.3 in) long. Only female flowers have been observed, and each 
consists of four sepals about 3.5 mm (0.1 in) long, four petals about 5 
mm (0.2 in) long, an eight-lobed nectary disk, eight reduced and 
nonfunctional stamens, and a hairless four-celled ovary. The 14 to 15 
mm (0.6 in) wide fruit is made up of 4 distinct follicles (dry fruits 
splitting along one side) 7 to 7.5 mm (0.3 in) long. Sepals and petals 
remain attached to the mature fruit. The endocarp (inner fruit wall) 
and the wrinkled exocarp (outer fruit wall) are both hairless. Melicope 
adscendens is distinguished from other species of the genus by its 
habit, the distinct follicles of its fruit, and the persistent 
(remaining attached) sepals and petals (Stone 1969, Stone et al. 1990).
    Melicope adscendens has been found only on the island of Maui on 
the southwestern slope of Haleakala. Two plants, separated by an 
unspecified distance, were found by Forbes in 1920. Today, one of these 
plants is still known to exist near Puu Ouli on privately owned land; 
the other plant has not been relocated. This species typically grows in 
Olopua Lowland Mesic Forest with hala pepe as a co-dominant at 
elevations between 914 and 1,200 m (3,000 and 3,900 ft). Associated 
taxa include Chamaesyce celastroides var. lorifolia ('akoko), Dodonaea 
viscosa (a'ali'i), Pouteria sandwicensis ('ala'a), and Styphelia 
tameiameiae (pukiawe). The plant grows next to a water pipeline on land 
used as a cattle (Bos taurus) ranch. Major threats are habitat damage 
and trampling by cattle, competition with the alien plant species 
Lantana camara (lantana) and Pennisetum clandestinum (Kikuyu grass), 
and reduced reproductive vigor and/or extinction from stochastic events 
due to the existence of only one known population with one individual. 
Potential threats include habitat degradation and damage to plants by 
feral axis deer (Axis axis), goats (Capra hircus), feral pigs (Sus 
scrofa), black twig borer (Xylosandrus compactus), fire, and ranch 
activities (such as water pipeline maintenance) (HHP 1992a; Art 
Medeiros, Haleakala National Park, Robert Hobdy, Hawaii Department of 
Land and Natural Resources, and Steve Perlman, Hawaii Plant 
Conservation Center, pers. comms., 1992).
    Melicope balloui was first collected by Horace Mann, Jr., and 
William Tufts Brigham in 1864 or 1865. When Wilhelm Hillebrand (1888) 
named this plant Pelea mannii, he cited this specimen as well as a 
specimen which is now thought to be P. peduncularis. If Mann and 
Brigham's specimen is chosen as the type of P. mannii, the correct name 
for the taxon will be M. mannii, and M. balloui will become a synonym 
(Stone et al. 1990). When naming P. balloui, Rock (1913) based his name 
on a specimen he had collected in 1910. Rock chose the specific epithet 
to honor Howard M. Ballou, who corrected the proof sheets of his 
landmark book on Hawaiian indigenous trees (Rock 1913). The specimen 
St. John cited as the type when he named and described P. ukuleleensis 
actually comprised material of both P. balloui and P. clusiaefolia, 
both previously validly published names (Stone 1963). Following the 
transfer of the genus Pelea to Melicope (Hartley and Stone 1989, Wagner 
et al. 1990), authors of the current treatment of the Hawaiian members 
of the genus (Stone et al. 1990) now consider P. balloui and P. 
ukuleleensis to be synonyms of M. balloui.
    Melicope balloui is a small tree or shrub, the new growth of which 
has yellowish brown woolly hairs and waxy scales. Plant parts later 
become nearly hairless. Leaves are opposite, leathery, inversely ovate 
to elliptic, 5 to 10 cm (2.0 to 3.9 in) long, 3 to 7 cm (1.2 to 2.8 in) 
wide, and have petioles 1.0 to 2.6 cm (0.4 to 1.0 in) long. The upper 
and lower surfaces of mature leaves are hairless except along the 
midrib of the lower surface. Each flower cluster is on a main stalk 3 
to 16 mm (0.1 to 0.6 in) long and comprises five to nine flowers on 
individual stalks about 5 mm (0.2 in) long. Only female flowers have 
been observed, and each consists of four sepals about 3 mm (0.1 in) 
long, four petals about 4 mm (0.2 in) long, an eight-lobed nectary 
disk, eight reduced and nonfunctional stamens, and a four-celled ovary 
with many short, fine hairs. The fruit, a four-lobed capsule 2.5 to 2.7 
cm (1.0 to 1.1 in) wide, consists of 1.2 to 1.3 cm (0.5 in) long 
carpels fused about a quarter of their length. Sepals and petals 
usually remain attached to the mature fruit. One or two glossy black 
seeds about 7 mm (0.3 in) long are found in each fertile carpel. The 
exocarp and endocarp are covered with fine, short hairs. Melicope 
balloui is distinguished from other species of the genus by the 
partially fused carpels of its four-lobed capsule and the usually 
persistent sepals and petals (Stone et al. 1990).
    Melicope balloui has been found only on the island of Maui on the 
northern and southeastern slopes of Haleakala. There are two known 
extant populations, located approximately 4.0 km (2.5 mi) apart near 
Puu o Kakae on privately owned land and in Kipahulu Valley on federally 
owned land within Haleakala National Park. The two populations are 
comprised of an estimated total of no more than 10 individuals. This 
species typically grows in koa- and 'ohi'a-dominated Montane Wet 
Forests at elevations between 760 and 1,520 m (2,500 and 5,000 ft). 
Associated taxa include Coprosma sp. (pilo), Dicranopteris linearis 
(uluhe), Joinvillea ascendens ssp. ascendens ('ohe), and Peperomia 
subpetiolata ('ala'ala wai nui). Major threats are habitat degradation 
and damage to plants by feral pigs and reduced reproductive vigor and/
or extinction from stochastic events due to the small number of 
existing populations and individuals. Potential threats include 
competition with alien plant taxa, such as Paspalum conjugatum (Hilo 
grass) and Psidium cattleianum (strawberry guava), susceptibility to 
black twig borer, and habitat degradation and damage to plants by feral 
goats and axis deer (HHP 1992c, 1992d; Linda Cuddihy, Hawaii Volcanoes 
National Park, and A. Medeiros, pers. comms., 1992).
    Based on a specimen collected by Forbes in the mountains above 
Hana, East Maui, St. John (1944) described and named Pelea ovalis, 
choosing the specific epithet to refer to the shape of the leaves of 
the species. Hartley and Stone (1989) synonymized the genus Pelea with 
Melicope, resulting in the combination M. ovalis.
    Melicope ovalis is a tree up to 5 m (16 ft) tall. New growth has 
fine, short, brownish hairs and soon becomes hairless. Leaves are 
opposite, leathery, broadly elliptic, 8 to 16 cm (3.1 to 6.3 in) long, 
4 to 10 cm (1.6 to 3.9 in) wide, and have petioles 3 to 4 cm (1.2 to 
1.6 in) long. The upper and lower surfaces of the leaves are hairless, 
and bruised foliage has an anise odor similar to that of M. anisata 
(mokihana). Each flower cluster is on a main stalk 3 to 12 mm (0.1 to 
0.5 in) long and comprises three to seven flowers on individual stalks 
10 to 13 mm (0.4 to 0.5 in) long. Further details of the flowers are 
unknown. The fruit, a capsule about 1 cm (0.4 in) long and 1.2 to 1.4 
cm (0.5 to 0.6 in) wide, has carpels that are fused along almost their 
entire length. Each fertile carpel contains one or two glossy black 
seeds about 5 mm (0.2 in) long. The exocarp and endocarp are both 
hairless. Melicope ovalis is distinguished from other species of the 
genus by the almost entirely fused carpels of its capsule, its 
nonpersistent sepals and petals, and its well-developed petioles (Stone 
et al. 1990).
    Melicope ovalis has been found only on the island of Maui on the 
eastern and southeastern slopes of Haleakala. There is one known extant 
population, located in Kipahulu Valley in Haleakala National Park. This 
species typically grows in koa- and 'ohi'a-dominated Montane Wet 
Forests at elevations between 850 and 1,430 m (2,800 and 4,700 ft). 
Associated taxa include Broussaisia arguta (kanawao), Cheirodendron 
trigynum ('olapa), and Perrottetia sandwicensis (olomea). Major threats 
are habitat degradation and damage to plants by feral pigs and reduced 
reproductive vigor and/or extinction from stochastic events due to the 
existence of only one population and one known individual. Competition 
with alien introduced plants such as Hilo grass and strawberry guava, 
susceptibility to black twig borer, and habitat degradation and damage 
to plants by feral goats and axis deer are potential threats (HHP 
1992e, 1992f; L. Cuddihy and A. Medeiros, pers. comms., 1992).

Previous Federal Action

    Federal action on these plants 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. In that 
document, Melicope balloui (as Pelea balloui) and M. ovalis (as P. 
ovalis) were considered to be endangered. 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, including M. balloui (as P. balloui) and 
M. ovalis (as P. ovalis). 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 2 years old be withdrawn. A 1-year 
grace period was given to proposals already over 2 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, along with four other proposals 
that had expired. The Service published an updated notice of review for 
plants on December 15, 1980 (45 FR 82479), in which M. balloui (as P. 
balloui) and M. ovalis (as P. ovalis) were considered to be Category 1 
candidates for Federal listing. Category 1 species are those for which 
the Service has on file substantial information on biological 
vulnerability and threats to support preparation of listing proposals. 
In an updated notice of review published on September 27, 1985 (50 FR 
39525), M. balloui (as P. balloui) was considered to be a Category 1 
species, and M. ovalis (as P. ovalis) a Category 1* species. Category 
1* taxa are those that are possibly extinct. In a notice of review 
published February 21, 1990 (55 FR 6183), M. adscendens was treated as 
a Category 3A species and M. balloui and M. ovalis as Category 1* 
species. Category 3A species are those for which the Service has 
persuasive evidence of extinction. Because specimens collected in the 
past few years were recently verified as being these three species, 
they are confirmed extant and are being listed as endangered.
    For petitions presenting substantial information that listing may 
be warranted, section 4(b)(3)(B) of the Act requires the Secretary to 
make a finding on whether the petitioned action is warranted within 12 
months of receipt of the petition. Section 2(b)(1) of the 1982 
amendments further requires 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 these species 
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 in the Federal Register on January 20, 1984 
(49 FR 2485). Such a finding requires the petition to be recycled 
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 one-year finding 
for these species.
    On May 11, 1993, the Service published in the Federal Register (58 
FR 18073) a proposal to list the plants Melicope adscendens, M. 
balloui, and M. ovalis as endangered. This proposal was based primarily 
on information supplied by the Hawaii Heritage Program and observations 
by botanists and naturalists. The Service now determines these three 
species of Melicope to be endangered with the publication of this rule.

Summary of Comments and Recommendations

    In the May 11, 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 listing 
decision. The public comment period ended July 12, 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 June 2, 1993, and ``The 
Maui News'' on June 1, 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 endangered and 
threatened species 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). The threats facing these three species are summarized 
in Table 1.

                                                              Table 1.--Summary of Threats                                                              
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                 Alien mammals                                                                                          
          Species          --------------------------------------------------------    Insects    Alien plants      Fire          Human        Limited  
                               Cattle         Deer          Goats         Pigs                                                   impacts      numbers*  
--------------------------------------------------------------------------------------------------------------------------------------------------------
Melicope adscendens.......  X...........  P...........  P...........  P...........  P...........  X...........  P...........  P...........  X           
Melicope balloui..........  ............  P...........  P...........  X...........  P...........  P...........  ............  ............  X           
Melicope ovalis...........  ............  P...........  P...........  X...........  P...........  P...........  ............  ............  X           
--------------------------------------------------------------------------------------------------------------------------------------------------------
KEY:                                                                                                                                                    
X=Immediate and significant threat.                                                                                                                     
P=Potential threat.                                                                                                                                     
*=No more than 10 known individuals and no more than 2 known populations.                                                                               

    These factors and their application to Melicope adscendens (St. 
John and E. Hume) T. Hartley and B. Stone (alani), M. balloui (Rock) T. 
Hartley and B. Stone (alani), and M. ovalis (St. John) T. Hartley and 
B. Stone (alani) are as follows:
    A. The present or threatened destruction, modification, or 
curtailment of its habitat or range. The native vegetation of East Maui 
has undergone extreme alterations because of past and present land 
management practices, including deliberate alien plant and animal 
introductions and agricultural development (Scott et al. 1986). 
Degradation of habitat by feral animals and competition with alien 
plants are considered to be the major threats to the three species.
    Cattle, introduced to Maui in the early 1800s, were permitted to 
range freely and subsequently became quite numerous. Cattle have 
converted large tracts of forest to open pasture on southern and 
northwestern Haleakala. Feral cattle consume native vegetation, trample 
roots and seedlings, accelerate erosion, and promote the invasion of 
alien plants (Cuddihy and Stone 1990, Stone 1985). Along with goats, 
cattle are considered one of the two most damaging alien vertebrates to 
Hawaii's native ecosystems. The long history of cattle grazing has so 
altered the southern slope of Haleakala that only pockets of native 
vegetation remain (Scott et al. 1986). The single known individual of 
Melicope adscendens grows in an area used for grazing, and cattle are 
considered an immediate threat to the species (A. Medeiros, pers. 
comm., 1992).
    Goats were introduced to Maui by the early 1800s and are now a 
serious threat to the integrity of Maui's forests. The impact of goats 
on the native vegetation is similar to that described for cattle 
(Cuddihy and Stone 1990, Stone 1985). Although they have now been 
removed, feral goats entered Kipahulu Valley in the past and could 
become a threat to Melicope balloui and M. ovalis if they return. Goats 
also occur near M. adscendens in Auwahi and are a potential threat to 
that species as well (A. Medeiros, pers. comm., 1992).
    Axis deer cause habitat degradation by trampling, consuming, and 
overgrazing vegetation. This process removes ground cover and often 
results in soil erosion. Alien plant taxa are then able to exploit the 
newly disturbed areas (Cuddihy and Stone 1990). Axis deer have become 
established at low elevation slopes of western and southern Haleakala 
and may become a threat to mesic and wet native forests on Haleakala. 
They are a potential threat to all three endangered species of Melicope 
(R. Hobdy and A. Medeiros, pers. comms., 1992).
    In contrast to goats and cattle, pigs typically occupy the wetter 
regions of Hawaii's forests and are one of the major current modifiers 
of wet forest habitats. Pigs damage native vegetation by their rooting 
and trampling activities. This process encourages the ingress of alien 
plants, which are able to exploit newly disturbed soil better than 
native taxa. In addition, these animals disseminate alien plant taxa 
through their feces and on their bodies (Cuddihy and Stone 1990, Stone 
1985). Pigs have severely damaged fragile and limited communities, such 
as that of Argyroxiphium virescens (greensword) (Stone 1985). This 
species of greensword was found at an historic site of Melicope 
balloui, which has not been relocated since 1920, and it is possible 
that pig damage caused the destruction of the habitat (HHP 1992g). 
Although M. balloui and M. ovalis grow in areas of Kipahulu Valley that 
are fenced to exclude pigs, the areas are not yet pig-free, so 
trampling of seedlings by pigs remains a threat to these two species 
(HHP 1992b, 1992d, 1992f; L. Cuddihy and R. Hobdy, pers. comms., 1992). 
Pigs are also present in Auwahi and constitute a potential threat to M. 
adscendens (S. Perlman, 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 all three of the proposed species, none of which 
has more than a total of two populations or 10 known individuals. 
Collection of whole plants or reproductive parts of these species could 
cause an adverse impact on the gene pool and threaten the survival of 
the species.
    C. Disease or predation. The black twig borer is a small beetle 
about 1.6 mm (0.06 in) in length that burrows into branches, introduces 
a pathogenic fungus as food for its larvae, and lays its eggs. Twigs, 
branches, and even an entire plant can be killed from such an 
infestation. In the Hawaiian Islands, black twig borer has many hosts 
and is widespread. It is known to attack species of Melicope and is a 
potential threat to all three proposed species (Hara and Beardsley 
1979).
    D. The inadequacy of existing regulatory mechanisms. Melicope 
ovalis occurs exclusively on Federal land (Haleakala National Park) but 
feral pigs still pose a threat in this area. Melicope adscendens is 
found exclusively on private land. One of the two known extant 
populations of M. balloui occurs on privately owned land within a State 
conservation district.
    Conservation district lands are regarded, among other purposes, as 
necessary for the protection of endemic biological resources and the 
maintenance or enhancement of the conservation of natural resources. 
Requests for amendments to district boundaries or variances within 
existing classifications can be made by government agencies and private 
landowners (HRS, sect. 205-4). The Hawaii Department of Land and 
Natural Resources is mandated to initiate changes in conservation 
district boundaries to include ``the habitat of rare native species of 
flora and fauna within the conservation district'' (HRS, sect. 195D-
5.1). 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, none of 
the three species in this rule is presently protected under the State's 
endangered species act, and, despite provisions for conserving endemic 
resources, individual rare species may be overlooked during 
consideration of other land use priorities. Even if all other threats 
were removed by virtue of occurrence and protection on Federal land or 
in conservation districts, these species are still in danger of 
extinction due to their low numbers.
    E. Other natural or manmade factors affecting its continued 
existence. The small numbers of individuals and populations of these 
three species of Melicope increase the potential for extinction from 
stochastic events. The limited gene pool may depress reproductive 
vigor, or a single human-caused or natural environmental disturbance 
could destroy a significant percentage of the individuals or an entire 
population, potentially causing the extinction of the species. Only one 
individual of M. adscendens is known to exist, the two populations of 
M. balloui contain a total of less than 10 known individuals, and only 
one individual of M. ovalis has been definitely identified.
    The only known individual of Melicope adscendens is located 
directly adjacent to a water pipeline used in ranching activities. 
Maintenance performed on the pipeline in the vicinity of the plant 
could damage or destroy the plant. In addition, cattle walking along 
the pipeline could easily trample the plant (A. Medeiros, pers. comm., 
1992).
    Competition with one or more alien plant taxa threatens one of the 
endangered Melicope species and constitutes a potential threat to the 
other two species. 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 Melicope 
adscendens (A. Medeiros, pers. comm., 1992). Kikuyu grass, an 
aggressive, perennial grass introduced to Hawaii as a pasture grass, 
withstands trampling and grazing and produces thick mats that choke out 
other plants and prevent their seedlings from establishing. The species 
has been declared a noxious weed by the U.S. Department of Agriculture 
(7 CFR 360) and threatens M. adscendens (O'Connor 1990; Smith 1985; A. 
Medeiros, pers. comm., 1992). The perennial Hilo grass, naturalized in 
moist to wet, disturbed areas on most Hawaiian Islands, produces a 
dense ground cover, even on poor soil, and is a potential threat to M. 
balloui and M. ovalis (O'Connor 1990; L. Cuddihy, pers. comm., 1992). 
Strawberry guava, widely naturalized in mesic and wet Hawaiian forests, 
develops into stands in which few other plants grow and physically 
displaces natural vegetation. Pigs depend on strawberry guava for food 
and in turn disperse the plant's seeds through the forests (Smith 1985, 
Wagner et al. 1990). Strawberry guava, considered to be the greatest 
weed problem in Hawaiian wet forests, is invading Kipahulu Valley and 
is a potential threat to M. balloui and M. ovalis (L. Cuddihy, pers. 
comm., 1992).
    Stochastic events such as human-set fires and wildfires destroy 
native Hawaiian vegetation and usually favor fire-resistant alien 
plants (Cuddihy and Stone 1990). Fire is a potential threat to Melicope 
adscendens (A. Medeiros, pers. comm., 1992).
    The Service has carefully assessed the best scientific and 
commercial information available regarding the past, present, and 
future threats faced by these species in issuing this rule. Based on 
this evaluation, the preferred action is to list these three species as 
endangered. The species consist of only 1 or 2 populations each and 1 
to approximately 10 known individual plants. They are threatened by 
habitat degradation and damage to plants by feral or domestic animals 
and by competition from alien plants. Small population size and limited 
distribution make these species particularly vulnerable to reduced 
reproductive vigor and/or extinction from stochastic events. Because 
these three 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 is not being designated for the three species 
included in this rule 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 propose critical 
habitat at the time the species is proposed to be endangered. The 
Service finds that designation of critical habitat is not presently 
prudent for these species. All three species have extremely low total 
populations and face anthropogenic threats. The listing of these 
species as endangered publicizes the rarity of the plants and, thus, 
can make the species attractive to researchers, curiosity seekers, or 
collectors of rare plants. The publication of precise maps and 
descriptions of critical habitat in the Federal Register and local 
newspapers as required in a designation of critical habitat would 
increase the species' vulnerability to take or vandalism and, 
therefore, could contribute to their decline and increase enforcement 
problems. Protection of the species' habitat will be addressed through 
the recovery process and through the section 7 consultation process. 
All involved parties and the landowners have been notified of the 
importance of protecting the habitat of these species. Two of the three 
species are found in Haleakala National Park where Federal law protects 
all plants from damage or removal. It is highly unlikely that Federal 
activities in the National Park would directly affect the continued 
existence of these two species. Therefore, the Service finds that 
designation of critical habitat for these species is not prudent at 
this time because such designation would increase the species' 
vulnerability to vandalism, collecting, or other human activities and 
because it is unlikely to aid in the conservation of the species.

Available Conservation Measures

    Conservation measures provided to species listed as endangered 
under the Endangered Species Act include recognition, recovery actions, 
requirements for Federal protection, and prohibitions against certain 
activities. Recognition through listing encourages and results in 
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 
actions be carried out for all listed species. 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 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 an endangered 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. One species (Melicope 
ovalis) is located only in Haleakala National Park. One population of 
another species (M. balloui) is also found in this park. Laws relating 
to national parks prohibit damage or removal of any plants growing in 
the parks. There are no Federal activities that are known to occur 
within the present known habitat of these three plant species.
    The Act and 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 the three 
Melicope species listed as endangered by this rule, 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 such 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 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 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 be likely to 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. Two of the species occur on 
National Park Service lands. Collection, damage or destruction of these 
species on Federal lands is prohibited without a Federal endangered 
species permit. Such activities on non-Federal lands would constitute a 
violation of section 9 if conducted in knowing violation of Hawaii 
State law or regulations or in violation of a State criminal trespass 
law (see Hawaii State Law section below). The Service is not aware of 
any trade in these species or of any activities currently being 
conducted by the public that will be affected by this listing and 
result in a violation of section 9. 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). 
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).

Hawaii State Law

    Federal listing will automatically invoke listing under the State's 
endangered species legislation. 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)). 
The State law prohibits cutting, collecting, uprooting, destroying, 
injuring, or possessing any listed species of plant, or attempting to 
engage in any such conduct. State law also encourages conservation by 
State agencies. Laws relating to the conservation of biological 
resources allow for the acquisition of land as well as the development 
and implementation of programs concerning the conservation of 
biological resources (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, as well as others, 
is available upon request from the Pacific Islands Office, see 
ADDRESSES above.

Author

    The authors of this rule are Marie M. Bruegmann and Zella E. 
Ellshoff, Pacific Islands Office, U.S. Fish and Wildlife Service, 300 
Ala Moana Boulevard, Room 6307, P.O. Box 50167, Honolulu, Hawaii 96850 
(808/541-2749).

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) * * *

--------------------------------------------------------------------------------------------------------------------------------------------------------
                     Species                                                                                                                            
--------------------------------------------------      Historic range               Family           Status   When listed     Critical    Special rules
     Scientific name            Common name                                                                                    habitat                  
--------------------------------------------------------------------------------------------------------------------------------------------------------
    Flowering Plants                                                                                                                                    
                                                                                                                                                        
                                                                                                                                                        
                                                                      * * * * * * *                                                                     
Melicope (=Pelea)         Alani..................  U.S.A. (HI)............  Rutaceae...............  E                 565  NA             NA           
 adscendens.                                                                                                                                            
                                                                                                                                                        
                                                                      * * * * * * *                                                                     
Melicope (=Pelea)         Alani..................  U.S.A. (HI)............  Rutaceae...............  E                 565  NA             NA           
 balloui.                                                                                                                                               
                                                                                                                                                        
                                                                      * * * * * * *                                                                     
Melicope (=Pelea) ovalis  Alani..................  U.S.A. (HI)............  Rutaceae...............  E                 565  NA             NA           
                                                                                                                                                        
                                                                      * * * * * * *                                                                     
--------------------------------------------------------------------------------------------------------------------------------------------------------

    Dated: November 8, 1994.
Mollie H. Beattie,
Director, Fish and Wildlife Service.
[FR Doc. 94-29729 Filed 12-2-94; 8:45 am]
BILLING CODE 4310-55-P