[Federal Register Volume 59, Number 235 (Thursday, December 8, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-30132]


[[Page Unknown]]

[Federal Register: December 8, 1994]


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DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service

50 CFR Part 17

RIN 1018-AB66

 

Endangered and Threatened Wildlife and Plants; Threatened Status 
for the Goliath Frog

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Final rule.

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SUMMARY: The Service determines threatened status for the goliath frog 
of Central Africa. This huge amphibian is narrowly distributed and is 
vulnerable to commercial collection for export and to other problems. 
This rule implements the protection of the Endangered Species Act of 
1973, as amended, for this species. Permits will be available for 
scientific purposes, to enhance propagation or survival, and for 
zoological exhibition.

EFFECTIVE DATE: January 9, 1995.

ADDRESSES: The complete file for this rule is available for public 
inspection, by appointment, from 8:00 a.m. to 4:00 p.m., Monday through 
Friday, in Room 750, 4401 Fairfax Drive, Arlington, Virginia 22203. 
Express and messenger-delivered mail should be sent to the Office of 
Scientific Authority at this same address.

FOR FURTHER INFORMATION CONTACT: Dr. Charles W. Dane, Chief, Office of 
Scientific Authority; Mail Stop: Arlington Square, Room 725; U.S. Fish 
and Wildlife Service; Washington, D.C. 20240 (phone 703-358-1708; FAX 
703-358-2276).

SUPPLEMENTARY INFORMATION:

Background

    Recent investigations have suggested an alarming worldwide decline 
in populations of frogs and other amphibians (Johnson 1994; Rabb 1990). 
Because of their generally complex life cycles, with aquatic larval and 
terrestrial adult stages, their low and high status in community food 
chains, and their permeable skin, amphibians constitute a group 
particularly sensitive to environmental disturbances. The precise 
causes of the decline are not well understood, but indicated factors in 
various cases include forest destruction, habitat fragmentation, 
overhunting, acid rain, metallic pollution, pesticides, and soil 
drying. Problems with frogs and other amphibians have been observed in 
such diverse places as Western Canada, South Carolina, Guatemala, 
Ecuador, Puerto Rico, Borneo, and Australia.
    The U.S. Fish and Wildlife Service (Service) has received 
information that the largest frog in the world is among those in 
jeopardy. This species, the goliath frog (Conraua goliath) of Central 
Africa, reaches a recorded weight of up to 7.2 pounds (3.3 kilograms), 
a head and body length of 12.6 inches (320 millimeters), and a total 
length, including the hind leg and foot, of about 32 inches (813 
millimeters); there have been reports of even larger individuals (Klass 
1990; Sabater Pi 1985; Zahl 1967). This giant amphibian has a 
relatively small range. It occurs along major rivers in dense 
rainforest within an area of about 10,000 square miles (26,000 square 
kilometers) in Equatorial Guinea, Gabon, and southwestern Cameroon. In 
contrast, the common bullfrog (Rana catesbiana), which is about half 
the size, occurs all across eastern North America from Quebec to Mexico 
(Frost 1985; Sabater Pi 1985; Zahl 1967).

Previous Federal Action

    In a petition dated April 9, 1991, the Service was requested to add 
the goliath frog to the List of Endangered and Threatened Wildlife. The 
petition was from Dr. Christina M. Richards (Biology Department, Wayne 
State University, Detroit, Michigan 48202) and Dr. Victor H. Hutchison 
(Department of Zoology, University of Oklahoma, Norman, Oklahoma 
73069). It was accompanied by extensive data on the biology of the 
goliath frog, and pointed out such problems as slow maturation, rarity, 
restricted distribution, habitat destruction, local hunting, 
international trade, high prices for living specimens, and poor 
adaptation to captivity.
    Section 4(b)(3) of the Endangered Species Act of 1973, as amended 
in 1982 (Act), requires two findings with respect to a petition to 
list, delist, or reclassify a species. Within 90 days of receipt, a 
finding must be made on whether the petition presents substantial 
information indicating that the requested action may be warranted, and, 
within 12 months of receipt, a finding must be made as to whether the 
action is warranted, not warranted, or warranted but precluded by other 
listing activity.
    The Service examined the data submitted by the petitioners and 
consulted other authorities. It also learned that the goliath frog is 
classified as vulnerable by the World Conservation Union (IUCN). This 
review led the Service to make the findings that the petition did 
present substantial information and that the requested action was 
warranted. These findings were incorporated in a proposal to list the 
goliath frog as a threatened species, published in the Federal Register 
of September 12, 1991 (56 FR 46397-46400). The comment period on the 
proposal was reopened by notices in the Federal Registers of July 19, 
1994 (59 FR 36737-36738), and October 25, 1994 (59 FR 53628-53629).

Summary of Comments and Recommendations

    In the proposed rule of September 12, 1991, and associated 
notifications, all interested parties were requested to submit 
information that might contribute to development of a final rule. 
Cables were sent to United States embassies in countries within the 
range of the subject species, requesting new data and the comments of 
the governments of those counties. Of the 12 responses received on the 
original proposal, 7 indicated support for classification of the 
goliath frog as threatened, 2 indicated opposition, and 3 did not 
clearly express an opinion in that regard. Several of the respondents 
provided new information, some of which has been incorporated into this 
document. Specific substantive points made in opposition to listing, or 
to other aspects of the proposal, are discussed below.
    Point 1.--Listing will bring about unnecessary restrictions and 
paperwork, thereby interfering with legitimate importation and 
research, and thus preventing efforts to propagate and maintain the 
goliath frog in captivity. Service response.--The Act requires the 
Service to list species that may be endangered or threatened, based on 
the best scientific and commercial data available, regardless of any 
inconvenience that may be caused by such listing. The Act provides for 
the issuance of permits to conduct otherwise prohibited activities for 
the purposes of scientific research, enhancement of propagation and 
survival of the species, and zoological exhibition. The Service will 
make every effort to expedite the processing of permit applications.
    Point 2.--The distribution of the goliath frog is poorly known and 
may extend over a considerably larger area than given in the proposal. 
Service response.--Based on the species' habitat requirements, it is 
possible that the range of the frog is larger than now known, but 
reports to this effect have so far been anecdotal. The original 
petitioners have indicated that the species does occur in a small part 
of Gabon.
    Point 3.--The habitat of the goliath frog is not so restricted as 
indicated in the proposal, the species not being limited, for example, 
to areas of cascades and rapids. Service response.--Information from 
several respondents, with varying views on listing, suggests that this 
is a valid point. The following statement by Dr. Peter Brazaitis (New 
York Zoological Society, personal communication) may help resolve the 
issue: ``I agree they are not restricted to waterfalls and rapids but 
are found in small cul-de-sacs and broad deep rivers most of which 
descend over waterfalls and rapids at some point and probably are well 
oxygenated.''
    Point 4.--The goliath frog is not rare, is easily located and 
caught, and probably numbers in the hundreds of thousands, and also is 
not a major food source for the native people. Service response.--The 
preponderance of evidence does suggest that the species can still be 
collected in small numbers by knowledgeable persons who are willing to 
go out into rivers, well away from settled areas, at night, thereby 
taking some risks because of the currents and other hazards. It is 
utilized for food whenever practical, though there are conflicting 
views on the resulting impact on over-all populations. Reports of large 
numbers may in part be based on observations of other species of the 
genus Conraua that occur in the same area and that may reach the size 
of immature C. goliath. In any case, absolute numbers may have little 
bearing on degree of threat. As noted below in the ``Summary of Factors 
Affecting the Species,'' the government of Cameroon now classifies the 
goliath frog as ``rare or on the way to extinction.''
    Point 5.--Extensive habitat destruction has not been observed. 
Service response.--While several respondents indicated this to be the 
case, other authorities with experience in the involved areas, as cited 
below in the ``Summary of Factors Affecting the Species.'' do consider 
deforestation and various other forms of environmental disruption to be 
a threat to the goliath frog.
    Point 6.--There is little demand for commercial or exhibitional 
purposes and few, if any, frogs are now being exported. Service 
response.--Information from Dr. Brazaitis (as cited above) and 
Professor Jean-Luc Amiet of the University of Yaounde (as conveyed by 
the petitioners and in a telegram from the United States embassy in 
Yaounde), suggests that commercial interest was stimulated following 
initial collection activity and display in the 1980s. There is much 
potential demand for this spectacular amphibian, for such purposes as 
the pet trade, exhibition, and food production. The exact number of 
individuals exported from the range states is unknown but most reports 
suggest a figure in the hundreds during the 1980s. Statistics compiled 
by Professor Amiet show a total of 433 licensed exports from Cameroon 
from 1985 to 1990, with about 80 percent going to the United States and 
the vast majority being for commercial purposes. A 1991 ban on 
exportation from Cameroon reportedly has not been fully successful. 
Service records indicate that at least 72 individuals were exported 
from Equatorial Guinea and Cameroon to the United States in 1992; 5 
more arrived in February 1993. The extremely high prices that have been 
advertised may be evidence both of demand and difficulty in obtaining 
specimens.
    Point 7.--The goliath frog is not necessarily difficult to 
transport or maintain in captivity, and there is no reliable evidence 
showing that it is slow to reach maturity. Service response.--A 
consensus among respondents is that it is possible to successfully 
transport and maintain the goliath frog, and that some individuals have 
survived for months or years in captivity, but this involves 
considerable effort and diligence, many frogs have been lost, and much 
more must be learned before intensive utilization would be safe. All 
individuals kept by zoos in the United States have now died. Little is 
known about the biology of this species, the suggested slow maturation 
being only a judgment based on the great size of full grown 
individuals.
    In the notices of July 19 and October 25, 1994, reopening the 
comment period, the Service observed that the above concerns had been 
raised and solicited additional information on these matters and other 
aspects of the status and biology of the goliath frog. Cables again 
were sent to United States embassies in appropriate countries and other 
requests were made for new data and comments. Of the 6 new responses 
received, 3 expressed support for the original proposal and 3 indicated 
that no new information had been obtained. Considering these responses 
and all previously collected material, the Service now is proceeding 
with a final rule to determine threatened status for the goliath frog.

Summary of Factors Affecting the Species

    After a thorough review and consideration of all information 
available, the Service has determined that the goliath frog should be 
classified as threatened. 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 the goliath frog (Conraua goliath) are as follows:

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

    The goliath frog has a narrowly restricted range and has been 
reported to be rare therein. Despite its spectacular size it was not 
formally described until 1906. Subsequent investigators have commented 
repeatedly on how difficult the species is to locate, approach, and 
capture (Gewalt 1977; Perret 1957; Perret and Mertens 1957). Data 
compiled by the petitioners show that only 91 specimens were reported 
collected through 1967. The rate of collection later increased in 
response to growing scientific and commercial interest. Letters 
solicited by the petitioners from authorities in Cameroon pointed out 
that logging, deforestation, and dams are affecting the limited habitat 
of the goliath frog. For example, Roger C. Fotso of the Laboratory of 
Zoology, University of Yaounde, wrote: ``It is clear that the giant 
frog suffers from habitat loss, due to intensive deforestation in the 
whole region. The region in which this frog occurs corresponds to one 
of the most populated parts of the country * * * urgent measures need 
to be taken to protect the giant frog in Cameroon where it is not just 
lucky enough to occur in a national park or reserve.'' Professor Amiet 
(as cited by the United States embassy in Yaounde) noted that the 
recent establishment of reserves in Cameroon appears to have slowed or 
stabilized the decline of the species. With respect to the situation in 
neighboring Equatorial Guinea, Sabater-Pi (1985) reported that the 
habitat of the goliath frog ``has been altered mainly by human 
activities, such as deforestation for agricultural purposes, forest 
exploitation and establishment of new villages. All these factors 
drastically have altered the ecosystem inhabited by the species.''

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

    The goliath frog is hunted by the native peoples within its range, 
some of whom consider its meat a delicacy. Information presented by 
Zahl (1967) suggests that this species is so difficult to approach, its 
capture is a cause for celebration. Sabater-Pi (1985) warned that it 
was threatened by native hunting and that effective protective measures 
were needed at the national level.
    A new problem, and one causing much of the immediate concern for 
the species, is capture and export of live animals. Because of its 
size, the goliath frog has much potential for public and private 
exhibition. Advertisements submitted by the petitioners show that the 
asking price in early 1990 was $599.00 for ``small'' specimens and 
$2,500.00 for individuals weighing 6-9 pounds. In July 1992, a zoo 
purchased six frogs from an importer at $1,200.00 each. An individual 
exported from the United States to Japan in October 1993 had a declared 
value of $1,400.00. One U.S. dealer is reported to have imported many 
individuals and to have attempted to enter some in the well-known Frog 
Jump Jubilee in Calaveras County, California. Further information and 
statistics on commercial trade are given above in ``point 6'' of the 
``Summary of Comments and Recommendations.''
    In a letter to the petitioners, Bob Johnson, Curator of Amphibians 
and Reptiles at the Toronto Metropolitan Zoo, expressed concern that 
current levels of commercial exploitation might be excessive in 
relation to sustainability of wild populations of Conraua goliath. He 
noted also that survival rates in previous importations have not been 
high, primarily because of shipping stress and the time required to 
acclimate the species to captive conditions.

C. Disease or Predation

    While not now known to be general problems, disease and natural 
predation are to be expected and may become of serious conservation 
concern for populations that already have been severely reduced or 
fragmented through human disturbance.

D. The Inadequacy of Existing Regulatory Mechanisms

    Although the goliath frog currently is classified as vulnerable by 
the IUCN (Groombridge 1994), it is not covered by the Convention on 
International Trade in Endangered Species of Wild Fauna and Flora 
(CITES). Preliminary to the Eighth Meeting of the Conference of Parties 
to CITES, held in Kyoto in March 1992, the Service submitted a proposal 
to include the goliath frog in Appendix II of CITES. However, at the 
meeting the Service withdrew this proposal, based mainly on an analysis 
developed by the IUCN Species Survival Commission Trade Specialist 
Group (Brautigam 1992). A subsequent review of that analysis suggests 
that it is not complete; all three of the substantive listed references 
are actually negative responses (two of them from the same parties) to 
the Service's proposals to list the goliath frog as threatened or to 
include it in Appendix II of CITES. The analysis does not utilize 
information from the proposals themselves, the various positive 
responses thereto, or the listing petition.
    As noted above, exportation of the goliath frog from Africa 
continued at least to 1993, and effectiveness of local regulation is 
not well understood. However, in a letter of May 11, 1994, the Ministry 
of Environment and Forests of Cameroon notified the Service that the 
goliath frog is now classified as a species that is ``rare or on the 
way to extinction.'' It is under complete legal protection in Cameroon 
and cannot be taken without special authorization from the Ministry.

E. Other Natural or Manmade Factors Affecting its Continued Existence

    Although Conraua goliath is by far the world's largest frog, its 
eggs, tadpoles, and young are hardly larger than those of other frogs 
(Sabater-Pi 1985; Zahl 1967). The petitioners therefore state that C. 
goliath undoubtedly takes a longer time than do most frogs to become 
sexually mature, and a mature animal removed from a population will not 
be replaced quickly. They note also that mortality in captivity is 
extremely high and zoos have been unable to keep specimens for long 
term display. As pointed out in the above ``Summary of Comments and 
Recommendations,'' some individuals have been successfully maintained 
for lengthy periods in captivity, but only through much effort and 
expense. Attempts to establish colonies at Lincoln Park Zoo, Chicago, 
and Washington Park Zoo, Portland, were unsuccessful. All frogs there 
now have died and the Service is not aware of any other zoos that are 
maintaining the species.
    The decision to determine threatened status for the goliath frog 
was based on an assessment of the best available scientific 
information, and of past, present, and probable future threats to the 
species. This giant frog is narrowly distributed, and is vulnerable to 
human exploitation and environmental disruption. In the proposed rule 
the Service noted that further review might lead to a final rule 
classifying the goliath frog as endangered, rather than threatened. 
Information obtained during the comment period, however, supports 
recognition of the species as threatened. Although there are questions 
about population status and biological factors, there is general 
concern regarding long-term habitat trends and potential commercial 
demand. If conservation measures are not implemented, further declines 
are likely to occur, increasing the danger of extinction for the 
goliath frog. Critical habitat is not being determined, as its 
designation is not applicable to foreign species.

Available Conservation Measures

    Conservation measures provided to species listed as endangered or 
threatened pursuant to the Act include recognition, requirements for 
Federal protection, and prohibitions against certain practices. 
Recognition through listing encourages conservation measures by 
Federal, international, and private agencies, groups, and individuals.
    Section 7(a) of the Act, as amended, and as implemented by 
regulations at 50 CFR part 402, requires Federal agencies to evaluate 
their actions that are to be conducted within the United States or on 
the high seas, with respect to any species that is proposed or listed 
as endangered or threatened and with respect to its proposed or 
designated critical habitat (if any). 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 
proposed Federal action may affect a listed species, the responsible 
Federal agency must enter into formal consultation with the Service. No 
such actions within U.S. jurisdiction are currently known with respect 
to the species covered by this proposal.
    Section 8(a) of the Act authorizes the provision of limited 
financial assistance for the development and management of programs 
that the Secretary of the Interior determines to be necessary or useful 
for the conservation of endangered species in foreign countries. 
Sections 8(b) and 8(c) of the Act authorize the Secretary to encourage 
conservation programs for foreign endangered species, and to provide 
assistance for such programs, in the form of personnel and the training 
of personnel.
    Section 9 of the Act, and implementing regulations found at 50 CFR 
17.21 and 17.31 set forth a series of general prohibitions and 
exceptions that apply to all threatened wildlife. These prohibitions, 
in part, make it illegal for any person subject to the jurisdiction of 
the United States to take, import or export, ship in interstate 
commerce in the course of commercial activity, or sell or offer for 
sale in interstate or foreign commerce any threatened wildlife. It also 
is illegal to possess, sell, deliver, transport, or ship any such 
wildlife that has been taken in violation of the Act. Certain 
exceptions apply to agents of the Service and State conservation 
agencies.
    Permits may be issued to carry out otherwise prohibited activities 
involving endangered and threatened wildlife under certain 
circumstances. Regulations governing permits are codified at 50 CFR 
17.22, 17.23, and 17.32. Such permits are available for scientific 
purposes, to enhance propagation or survival, or for incidental take in 
connection with other such lawful activities. For threatened species, 
there are also permits for zoological exhibition, educational purposes, 
or special purposes consistent with the purposes of the Act.

National Environmental Policy Act

    The 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, as amended. A 
notice outlining the Service's reasons for this determination was 
published in the Federal Register of October 25, 1983 (48 FR 49244).

Literature Cited

Brautigam, A. 1992. Analyses of proposals to amend the CITES 
Appendices. Submitted to the Eighth Meeting of the Conference of the 
Parties, Kyoto, Japan. World Conservation Union Species Survival 
Commission Trade Specialist Group.
Frost, D.R., ed. 1985. Amphibian species of the world. A taxonomic 
and geographical reference. Allen Press and Association of 
Systematic Collections, Lawrence, Kansas, v + 732 pp.
Gewalt, W. 1977. Einige Bemerkungen uber Fang, Transport und Haltung 
des Goliathfrosches (Conraua goliath, Boulenger). Zool. Garten 
47:161-192.
Groombridge, B., ed. 1994. 1994 IUCN red list of threatened animals. 
World Conservation Union, Gland, Switzerland, lv + 286 pp.
Johnson, B. 1994. Declining amphibian populations task force. 
Species, no. 21-22, pp. 118-119.
Klass, T. 1990. Monster frogs have leg up on other jumpers. Ann 
Arbor News, January 9.
Perret, J.L. 1957. Observations sur Rana goliath Blgr. Bull. Soc. 
Neuchateloise Sci. Nat. 80:195-202.
Perret, J.L., and R. Mertens. 1957. Etude d'une collection 
herpetologique faite au Cameroun de 1952 a 1955. Bull. de I.F.A.N. 
19:548-601.
Rabb, G.B. 1990. Declining amphibian populations. Species, no. 13-
14, pp. 33-34.
Sabater-Pi, J. 1985. Contribution to the biology of the giant frog 
(Conraua goliath, Boulenger). Amphibia-Reptilia 6:143-153.
Zahl, P.A. 1967. In quest of the world's largest frog. Natl. Geogr. 
134:446-452.

Author

    The primary author of this rule is Ronald M. Nowak, Office of 
Scientific Authority, U.S. Fish and Wildlife Service, Washington, D.C. 
20240 (703-358-1708).

List of Subjects in 50 CFR Part 17

    Endangered and threatened wildlife, Exports, Imports, Reporting and 
recordkeeping requirements, Transportation, and Wildlife.

Regulation Promulgation

    Accordingly, part 17, subchapter B of chapter I, title 50 of the 
Code of Federal Regulations, is hereby 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. Section 17.11(h) is amended by adding the following, in 
alphabetical order under AMPHIBIANS, to the List of Endangered and 
Threatened Wildlife:


Sec. 17.11  Endangered and threatened wildlife.

* * * * *
    (h) * * *

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                      Species                                                  Vertebrate population                                                    
---------------------------------------------------      Historic range         where endangered or       Status     When listed    Critical    Special 
       Common name             Scientific name                                       threatened                                     habitat      rules  
--------------------------------------------------------------------------------------------------------------------------------------------------------
       Amphibians                                                                                                                                       
                                                                                                                                                        
                                                                      * * * * * * *                                                                     
Frog, goliath...........  Conraua goliath.........  Cameroon, Equatorial      Entire.................  T                     566           NA         NA
                                                     Guinea, Gabon.                                                                                     
                                                                      * * * * * * *                                                                     
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    Dated: November 30, 1994.
Mollie H. Beattie,
Director, Fish and Wildlife Service.
[FR Doc. 94-30132 Filed 12-5-94; 8:45 am]
BILLING CODE 4310-55-M