[Federal Register Volume 60, Number 148 (Wednesday, August 2, 1995)]
[Proposed Rules]
[Pages 39326-39337]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-18811]
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DEPARTMENT OF THE INTERIOR
50 CFR Part 17
[RIN 1018-AD09]
Endangered and Threatened Wildlife and Plants; Proposed Rule to
Determine Five Plants and a Lizard from Monterey County, California, as
Endangered or Threatened
AGENCY: Fish and Wildlife Service, Interior.
ACTION: Proposed rule.
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SUMMARY: The U.S. Fish and Wildlife Service (Service) proposes
endangered status pursuant to the Endangered Species Act of 1973, as
amended (Act), for four plants and a reptile: Astragalus tener var.
titi (coastal dunes milk-vetch), Piperia yadonii (Yadon's piperia),
Potentilla hickmanii (Hickmann's potentilla), Trifolium trichocalyx
(Monterey clover) and the black legless lizard (Anniella pulchra
nigra); and threatened status for Cupressus goveniana ssp. goveniana
(Gowen cypress). The six taxa are found primarily along the coast of
northern Monterey County, California. The five plant taxa and the
lizard are threatened by one or more of the following: alteration,
destruction, and fragmentation of habitat resulting from urban and golf
course development; recreational activities; highway widening; military
activities; competition with non-native species; and alteration of
natural fire cycles. All taxa are also threatened with stochastic
extinction due to the small numbers of populations or individuals. This
proposed rule, if made final, would extend the Act's protection to
these taxa.
DATES: Comments from all interested parties must be received by October
9, 1995. Public hearing requests must be received by September 25,
1995.
ADDRESSES: Comments and materials concerning this proposal should be
sent to the Field Supervisor, Ventura Field Office, U.S. Fish and
Wildlife Service, 2493 Portola Road, Suite B, Ventura, California,
93003. Comments and materials received will be available for public
inspection, by appointment, during normal business hours at the above
address.
FOR FURTHER INFORMATION CONTACT: Carl Benz, Assistant Field Supervisor,
Ventura Field Office (see ADDRESSES section) (telephone number 805/644-
1766; facsimile 805/644-3958).
SUPPLEMENTARY INFORMATION:
Background
The Monterey Peninsula on the central California coast has been
noted for a high degree of species endemism (Axelrod 1982, Howitt 1972,
Raven and Axelrod 1978). Species with more northern affinities reach
their southern limits on the Peninsula; species with more southern
affinities reach their northern limits here as well (Howitt and Howell
1964). The Monterey Peninsula is influenced by a maritime climate that
is even more pronounced due to the upwelling of cool water from the
Monterey submarine canyon. Rainfall amounts to only 38 to 51
centimeters (cm) (15 to 20 inches) per year, but summer fog-drip is a
primary source of
[[Page 39327]]
moisture for taxa that would otherwise not be able to persist with such
low rainfall. Some taxa, such as the coastal closed-cone pines and
cypresses may represent relicts of species that once had a more
continuous, widespread distribution in the more mesic climate of the
late Pleistocene period, then retreated to small pockets of cooler and
wetter conditions along the coast ranges during the hotter and drier
xerothermic period between 8,000 and 4,000 years ago (Axelrod 1982).
In 1602, the Spanish government commissioned Sebastian Viscaino to
map the coastline; he travelled as far north as the Mendocino coast. In
his journal, he made note of the ``pine covered headlands'' and the
``great pine trees, smooth and straight, suitable for the masts and
yards of ships'' that he saw while anchored in Monterey Bay (F.B.
Larkey in Howitt 1972). During the early 1900s, Willis L. Jepson
characterized the forests on the Monterey Peninsula as the ``most
important silva ever'', and encouraged Samuel F. B. Morse of the Del
Monte Properties Company to explore the possibilities of preserving the
unique forest communities (F. B. Larkin in Howitt 1972). Morse believed
that developing recreational facilities would allow income to be
derived from the property while maintaining the forest intact.
In 1941, maps were compiled by the U.S. Forest Service to show
plant associations that were similar in ``fire-hazard characteristics
and in uses or qualities of economic importance'' (U.S. Forest Service
1941). The bulk of the Monterey Peninsula was mapped as Monterey pine
forest with a discrete stand of Bishop pine in the center of the
peninsula. The coastline was fringed with either ``barren'' stretches,
grassland, or ``sagebrush'', and a stretch of ``cypress species''
extending east along the coast from what is known as Cypress Point. By
1930, however, the construction of three golf courses likely resulted
in the removal of a number of Monterey pines.
Three native Monterey pine (Pinus radiata) stands remain in
California: on the Monterey Peninsula; near Ano Nuevo Point in northern
Santa Cruz County; and near Cambria in San Luis Obispo County. The
Monterey Peninsula stand is not only the most extensive of the three,
it is also unique in its association with Pinus muricata (Bishop pine),
Cupressus goveniana ssp. goveniana (Gowen cypress), and Cupressus
macrocarpa (Monterey cypress). While P. radiata grows well on a wide
variety of soils, it does not do well on the acidic, poorly-drained
soils found on Huckleberry Hill centrally located on Monterey
Peninsula. Here, the less aggressive C. goveniana ssp. goveniana and P.
muricata are spared competition from P. radiata. Some of the chaparral
species associated with these forest stands include Arctostaphylos
pumila (sandmat manzanita), Arctostaphylos hookeri ssp. hookeri
(Hooker's manzanita), Ceanothus dentatus (toothleaf lilac), and
Ericameria fasciculata (Eastwood's ericameria) (Holland 1986, Vogl et
al. 1988).
Much of what the Forest Service mapped in 1941 as grassland or
``barren'' (which most likely included coastal dunes) on the peninsular
coastline has been subsequently converted to golf courses. Remnant
dunes support a coastal dune scrub community dominated by Artemisia
pycnocephala (beach sagewort), Baccharis pilularis (coyote bush), and
several bush lupines (Lupinus arboreus, L. chamissonis). The
southernmost occurrences for Erysimum menziesii (Menzies wallflower),
Layia carnosa (beach layia), Lupinus tidestromii (Tidestrom's lupine),
and Gilia tenuiflora ssp. arenaria (dune gilia), all federally
endangered species, occur on these remnant dunes (Holland 1986, U.S.
Fish and Wildlife Service 1992). It is uncertain what species
characterized the grasslands mapped by the Forest Service. Aside from
harboring small populations of several of the species that are
contained within this proposed rule, these patches of herbaceous
vegetation support a large number of non-native grasses and succulents,
as well as opportunistic native herbaceous species (Ferreira 1992a,
Ferreira 1992b). As for the patches mapped by the Forest Service as
``sagebrush'', these most likely matched what is currently called
coastal sage scrub, a community dominated by Artemisia californica
(California sagebrush). For the most part, these patches occurred
within what are now urbanized portions of the cities of Monterey and
Pacific Grove and the Pacific Grove Municipal Golf Course.
Astragalus tener var. titi (coastal dunes milk-vetch) was first
collected by Mrs. Joseph Clemens in 1904 along 17-Mile Drive on the
Monterey Peninsula ``near an old hut composed of abalone shells and
coal-oil cans.'' Alice Eastwood (1905) later named the plant Astragalus
titi in honor of Dr. F. H. Titus. Subsequently, John Thomas Howell
(1938), while comparing a specimen of A. tener that was collected by
David Douglas near Salinas, Monterey County, remarked that although
``Astragalus titi Eastwood has generally been regarded as the same as
Astragalus tener, * * * the two plants are not the same and Astragalus
titi seems worthy of varietal, if not specific recognition.'' Rupert
Barneby published the combination A. tener var. titi in 1950, noting
the difference in flower size, habitat, and geographic range between it
and A. tener var. tener (Barneby 1950).
Astragalus tener var. titi is a diminutive annual herb of the pea
family (Fabaceae). The slender, slightly pubescent stems reach 1 to 1.5
decimeters (dm) (4 to 6 inches) in height, with leaves that are 7 to 11
pinnately compound and 2 to 7 cm (0.8 to 2.7 inches) long with slightly
bilobed tips. The tiny lavender to purple flowers are 5 to 6
millimeters (mm) (0.25 inches) long and are arranged in subcapitate
racemes of 2 to 12 flowers. The linear seed pods are straight to
sickle-shaped and 6 to 14 mm (0.25 to 0.6 inches) long (Bittman 1985).
Two historical locations from Los Angeles County (Hyde Park in
Inglewood and Santa Monica) and two from San Diego County (Silver
Strand and Soledad) were annotated by Barneby as Astragalus tener var.
titi (Barneby 1950). Numerous unsuccessful searches for the plant have
been made in these locations over the past decade (Ferreira 1992a,
Julie Vanderweir, botanical consultant, San Diego County, pers. comm.,
1992). It is unlikely that suitable habitat remains, since the Los
Angeles County locations have been heavily urbanized. The Silver Strand
area is owned by the Department of Defense (Miramar Naval Weapons
Center), and a portion has been subjected to amphibious vehicle
training exercises. Another portion of Silver Strand has been leased by
the Navy to the California Department of Parks and Recreation for
development of a campground and recreational facilities.
The only known extant population of Astragalus tener var. titi
occurs along 17-Mile Drive on the western edge of the Monterey
Peninsula on land owned by the Pebble Beach Company. The milk-vetch
occurs on a relatively flat coastal terrace within 30 meters (m) (100
feet (ft)) of the ocean beach and 8 m (25 ft) above sea level. The
loamy fine sands that comprise a series of shallow swales on the
terrace surface support standing water during wet winter and spring
seasons. Individual plants are found on the bottoms or sides of the
swales growing in association with other low growing grasses and herbs,
including the non-native Carpobrotus edulis (hottentot fig) and
Plantago coronopus (cut-leaf plantain). In 1992, only 120
[[Page 39328]]
individuals were counted from the known population, which over the past
decade had fluctuated from 15 to 1,000 individuals (Ferreira 1992a).
The population was bisected by construction of 17-Mile Drive, which
also likely altered the local hydrology. Half of the remaining habitat
occurs between the road and the ocean bluff's edge, and the other half
occurs between the interior side of the road and a horse trail that
runs parallel to a golfing green. Astragalus tener var. titi is
currently threatened with alteration of habitat from trampling
associated with several recreational activities, including hiking,
picnicking, ocean viewing, wildlife photography, equestrian use, and
golfing. The species also faces threats from stochastic (i.e., random)
extinction by virtue of the small size of the remaining population. The
plant may also be threatened with competition from the non-native
Carpobrotus edulis and Plantago coronopus, though current management by
the Pebble Beach Company includes hottentot fig removal from a portion
of the habitat.
Cupressus goveniana ssp. goveniana (Gowen cypress) was first
discovered by Karl Hartweg ``on the pine barrens of Huckleberry Hill
(Monterey Peninsula)'' in 1846. The plant was described as Cupressus
goveniana by British horticulturalist George Gordon in 1849 who named
it after fellow horticulturalist James R. Gowen (Sargent 1896). Charles
Sargent (1896) described the tree as being widely distributed ``from
the plains of Mendocino County to the mountains of San Diego County''
as he included taxa now recognized as distinct in his definition of C.
goveniana. John G. Lemmon published the name C. goveniana var. pigmaea
in 1895 to refer to the stands found on the ``White Plains'' of
Mendocino County, also referred to as pygmy cypress or Mendocino
cypress. As a result of this segregation, the material from the
Monterey area would be treated as C. goveniana var. goveniana. However,
Bartel (1993), in keeping with the use of subspecies in the treatment
of Cupressus, used C. goveniana ssp. goveniana for the revision of
Jepson's Manual. The Service is using Bartel's subspecific treatment
for this taxon.
Cupressus goveniana ssp. goveniana (Gowen cypress) is a small
coniferous tree or shrub in the cypress (Cupressaceae) family. Most of
the 10 taxa in the genus Cupressus found in California have relatively
small ranges (Bartel 1993). Of the three coastal cypresses, native
stands of C. macrocarpa (Monterey cypress) and C. goveniana ssp.
goveniana are both restricted to the Monterey Peninsula and Point Lobos
in Monterey County.
Cupressus goveniana ssp. goveniana generally reaches a height
between 5 and 7 m (17 to 23 ft) (Munz 1968), though Griffin noted one
individual that was 10 m (33 ft) high at Huckleberry Hill (Griffin and
Critchfield 1976). The sparsely branched tree forms a short, broad
crown with a spread of 2 to 4 m (7 to 13 ft). The bark is smooth brown
to gray, but becomes rough and fibrous on old trees. The scale-like
foliage is a light rich green, with leaves 1 to 2 mm long (0.04 to 0.08
inches). The female cones are subglobose (nearly spherical), 10 to 15
mm (0.4 to 0.6 inches) long, and produce 90 to 110 seeds (Wolf and
Wagener 1948). The cones, which typically mature in 2 years, remain
closed for many years while attached to the cone. Seeds can be released
upon mechanical removal from the tree, or more typically upon death of
the tree or supporting branch as by heat generated by a wildfire.
Cupressus goveniana ssp. goveniana is distinguished from its close
relative C. goveniana ssp. pigmaea (pygmy or Mendocino cypress) by its
much taller stature, the lack of a long, whip-like terminal shoot, and
light to yellow-green rather than dark dull green foliage (Bartel
1993).
Only two natural stands of Cupressus goveniana ssp.goveniana are
known to exist, though individuals can be found locally in cultivation.
Cupressus goveniana ssp. goveniana is associated with Pinus radiata
(Monterey pine), Pinus muricata (Bishop pine), and several taxa in the
heath family (Ericaceae) (e.g. Vaccinium, Gaultheria, (Arctostaphylos)
on poorly drained, acidic, podsol soils (Griffin and Critchfield 1976).
The largest stand, referred to here as the Del Monte Forest stand, is
near Huckleberry Hill on the western side of the Monterey Peninsula.
This stand covers approximately 40 hectares (100 acres), with
individuals scattered within a kilometer (\1/2\ mile) of the main
stand.
At least three fires have burned portions of the Del Monte Forest
stand in the last 100 years. A large fire burned most of the stand in
1901 (Coleman 1905, and Dunning 1906, in Vogl et al. 1988). The
northern portion of the stand apparently burned in 1959 (California
Department of Fish and Game (CDFG) 1992). The most recent fire burned
through the central and eastern portions of the population in 1987.
Wolf and Wagener (1948) reported that patches of crowded, poorly
developed individuals, referred to as ``canes'', were cut for posts,
making it difficult to determine the original extent of the grove.
The Del Monte Forest stand is on lands owned by the Pebble Beach
Company and the Del Monte Forest Foundation (DMFF). The purpose of the
DMFF, originally established as the Del Monte Foundation in 1961 by the
Pebble Beach Company, is to ``acquire, accept, maintain, and manage
lands in the Del Monte Forest which are dedicated to open space and
greenbelt'' (DMFF, in litt., 1992). A large portion of the Del Monte
Forest stand is within a 34-hectare (84-acre) area designated as a
botanical reserve (Samuel F.B. Morse Botanical Reserve) in the 1960s
and donated to DMFF in 1976. In the early 1980s, development of the
Poppy Hills Golf Course removed 840 Gowen cypress trees and surrounded
other small patches by fairways. The remaining portion of the stand is
on lands designated as ``open space'', and a conservation easement for
this area is currently being acquired by DMFF.
A second smaller stand of Cupressus goveniana ssp. goveniana
approximately 16 to 32 hectares (40 to 80 acres) in size occurs 10 km
(6 miles) to the south near Gibson Creek on a 60-hectare (150-acre)
parcel acquired by the California Department of Parks and Recreation
(DPR) (Point Lobos State Reserve) in 1962. The very western edge of the
stand is on privately owned ranchlands (Jones and Stokes Associates,
Inc. 1989). In this stand, C. goveniana ssp. goveniana is associated
with Pinus radiata and chaparral species Griffin and Critchfield 1976,
Vogl et al. 1988). Due to the physical inaccessibility of the Point
Lobos stand and the Reserve's mandate to protect sensitive plant taxa,
the Point Lobos stand exhibits fewer signs of human disturbance than
the Del Monte Forest stand.
Despite measures taken to protect the Cupressus goveniana ssp.
goveniana stand at the Del Monte Forest, such as establishing the Morse
Reserve, the opportunities for maintaining a viable long-term stand may
be compromised by the site's close proximity to urbanization. This
species is threatened by habitat alteration and destruction due to the
influence of continued urban development in Pebble Beach and to the
disruption of natural fire cycles as a result of fire suppression
activities. In addition, the Del Monte Forest stand has been invaded by
aggressive non-native species, including Cortaderia sellanoa
(pampasgrass) and Cytisus monspessulanus (French broom). An increase in
such invasive alien plants will undoubtedly alter the composition of
the plant community and may adversely affect C. goveniana ssp.
goveniana. The cypress is also
[[Page 39329]]
threatened with stochastic (i.e., random) extinction due to the small
amount of habitat occupied by the species.
Piperia yadonii (Yadon's piperia) was first collected by Leroy
Abrams in 1925 in open pine forest near Pacific Grove. At that time, it
was identified as Piperia unalascensi (Morgan and Ackerman 1990), a
polymorphic, wide-ranging species found from Alaska to Colorado,
southern California, and northwestern Mexico. In the most recent
treatment of the genus Piperia, James D. Ackerman (1977) segregated out
several long-spurred taxa from the P. unalascensis complex, but
attempted no analysis of the short-spurred forms. Subsequently, Morgan
and Ackerman (1990) segregated out two new taxa from the P.
unalascensis complex. One of these, P. yadonii, was named after Vernal
Yadon, previous Director of the Museum of Natural History in Pacific
Grove, Monterey County.
Piperia yadonii is a slender perennial herb in the orchid family
(Orchidaceae). During the first few years of growth, the plant is
visible only by its one or two lanceolate to oblanceolate basal leaves
which die back each winter. In mature plants, the leaves are 10 to 15
cm (4 to 6 inches) long and 2 to 3 cm (0.8 to 1.2 inches) wide. After
several years of vegetative growth, the plant sends up a single stem to
80 cm (31 inches) tall with flowers arranged in a dense narrow-
cylindrical raceme. The flowers consist of three petal-like sepals and
three petals, which together appear as one flower containing six
tepals. The upper three tepals are basically green and the lower three
white. The lowermost tepal is specialized into a lip that is narrowly
triangular and is strongly decurved such that the tip nearly touches
the spur of the flower (Morgan and Ackerman 1990). Piperia yadonii is
sympatric with P. elegans, P. elongata, P. michaelii, and P.
transversa, but is distinguished from them by the shorter spur length,
the particular pattern of green and white floral markings, and the
earlier flowering time (R. Morgan, botanical consultant, Soquel,
California, pers. comm., 1992).
Piperia yadonii is found within Monterey pine forest and maritime
chaparral communities in northern coastal Monterey County from the
Monterey Peninsula northeast to the Elkhorn Slough area. This plant
occurs primarily on sandstone and sandy soils that are often poorly
drained, though dry in summer when the plants are flowering (Morgan and
Ackerman 1990). Six populations are clustered on the Monterey
Peninsula; two are on Pebble Beach Company lands, two are on DMFF
lands, and two are in city parks in Pacific Grove and Monterey. Four
populations are clustered generally between Prunedale and Elkhorn
Slough; three of these are on privately owned lands, including one
population on land managed by The Nature Conservancy (TNC) (Blohm
Ranch), and one is on County property (Manzanita County Park). One
small population is located at the northernmost corner of Fort Ord near
Marina.
Recent surveys by Morgan indicate that the largest population,
consisting of approximately 500 individuals, is scattered along a 2.1
km (1.3 mile) stretch of private road in Pebble Beach (Morgan, in
litt., 1992). One population, located in Long Valley between Prunedale
and Elkhorn Slough, comprises approximately 150 individuals; the
remaining populations range in size from a few individuals to fewer
than 100 individuals (Morgan, in litt., 1992).
Piperia yadonii was once more abundant on the Monterey Peninsula.
Many historic collections were made from the Pacific Grove area, which
has since been urbanized. It is also likely that the plant was
previously more abundant in the Prunedale-Elkhorn Slough area; a lack
of historical collections from this area is probably a reflection of
the lower intensity of botanical collecting compared to the Monterey
Peninsula area. Continued alteration and destruction of habitat due to
urban and golf course development is currently the greatest threat to
P. yadonii. Other threats include competition with non-native species,
roadside mowing, and a proposed realignment of Highway 101 known as the
Prunedale bypass. The small numbers of individuals and populations also
make P. yadonii vulnerable to stochastic extinction.
Potentilla hickmanii (Hickmann's potentilla) was originally
collected by Alice E. Eastwood in 1900 ``near the reservoir which
supplies Pacific Grove, [Monterey County] California, along the road to
Cypress Point''. The reference to a reservoir could refer to Forest
Lake in Pebble Beach but more likely refers to the Pacific Grove
reservoir (Ferreira 1992b). Eastwood (1902) described the species 2
years later, naming it after J. B. Hickman who was her guide on that
collecting trip.
Potentilla hickmanii is a small perennial herb in the rose family
(Rosaceae) that annually dies back to a woody taproot. The leaves are
pinnately compound into generally six paired, palmately cleft leaflets
each 2 to 8 mm (0.08 to 0.3 inches) long and 1 to 3 mm (0.04 to 0.1
inches) wide. Several reclining stems 8 to 15 cm (3 to 6 inches) long
support two to four branched cymes (flowering stems) each of which is
one- to two-flowered. The flowers consist of 5 ovate to obtuse sepals 6
mm (0.23 inches) long; yellow obcordate petals 6 mm (0.23 inches) long
and 5 mm (0.19 inches) wide; and 20 stamens (Abrams 1944, CNPS 1987).
Potentilla hickmanii is separated from two other potentillas that occur
on the Monterey Peninsula (P. egedii var. grandis and P. glandulosa) by
a combination of its small stature, leaflet size and shape, and color
of the petals.
Only three historical locations for the plant are known (CDFG
1992). A collection was made by Ethel K. Crum in 1932, apparently in
the vicinity of Eastwood's original collection. Ferreira (1992b)
surveyed the area surrounding the Pacific Grove reservoir in 1992, but
found no Potentilla hickmanii plants or suitable habitat for the
species. A second location was observed by E.C. Suttliffe at Moss Beach
near Half Moon Bay, San Mateo County, in 1933. This occurrence is
presumed to be extirpated by urban development in the Half Moon Bay
area.
Potentilla hickmanii is currently known from only one location, on
the western Monterey Peninsula, in a meadow opening within Monterey
pine forest. Loamy fine sandy soils support a meadow community of non-
native grasses and several introduced and native herbs. A total of 24
individuals of P. hickmanii were located during 1992 surveys, 9 of
which are within a small exclosure constructed by the Pebble Beach
Company to protect the plants; the other 15 are located within 30 m
(100 ft) of the exclosure (Ferreira 1992b). The Pebble Beach Company
has maintained management responsibilities for the meadow, though
ownership of the land has been transferred to the Del Monte Forest
Foundation. Potentilla hickmanii is currently threatened with
alteration of habitat resulting from recreational activities. The
meadow, called Indian Village, is available for use by residents of
Pacific Grove and has been developed as an outdoor recreational park.
The extremely small numbers of individual plants and populations also
make P. hickmanii vulnerable to stochastic extinction.
Trifolium trichocalyx (Monterey clover) is a member of the pea
family (Fabaceae). The genus Trifolium is well-represented in North
America, with approximately 50 species recognized in California (Munz
1959). Members of this herbaceous genus are characterized by the
palmately three-foliate leaves (hence the name Trifolium) and flowers
in spheroid or oblong heads.
[[Page 39330]]
Trifolium trichocalyx was first collected by Amos A. Heller ``in
sandy pine woods about Pacific Grove'' in 1903, and described by him
the following year (Heller 1904). Laura F. McDermott (1910) considered
the taxon a variety of T. oliganthum in her treatment of the genus, but
this was not recognized in subsequent floras. Axelrod (1982) deferred
to Gillett's suggestion that T. trichocalyx is a sporadic hybrid
between T. microcephalum and T. variegatum and recommended removing it
from the list of taxa considered Monterey endemics. This view was
challenged by Vernal Yadon (in litt., 1983) who had grown T.
trichocalyx and observed that it consistently produces up to seven
seeds per pod, while both purported parents were two-seeded taxa.
Trifolium trichocalyx has continued to be recognized as a distinct
taxon by Abrams (1944), Munz (1959), Howitt and Howell (1964) and Isely
(1993) and is accepted as such by the Service.
Trifolium trichocalyx is a much-branched prostrate annual herb with
leaflets that are obovate-cuneate, 0.4 to 1.2 cm (0.2 to 0.5 inches)
long, truncate or shallowly notched at the apex, and spinulose-
denticulate along the margins. The numerous flowers are clustered into
heads subtended by a laciniate-toothed involucre. The calyces are 7 mm
(0.3 inches) long, toothed, and conspicuously pilose; the purple
corollas scarcely equal the length of the calyx; the deciduous seed
pods enclose up to seven seeds. The plant can be quite inconspicuous,
as the prostrate branches may be only 3 to 4 cm (1.2 to 1.6 inches)
long. With favorable conditions, however, branches may reach a length
of 20 to 30 cm (8 to 12 inches) (Abrams 1944, Yadon, in litt., 1983).
Branches from one large plant may spread through the forest litter and
give the appearance of many plants. Of the four species of Trifolium
growing on Huckleberry Hill, all except T. trichocalyx contain two
seeds per pod. Trifolium trichocalyx is currently known from only one
area, Huckleberry Hill, covering approximately 16 hectares (40 acres)
(Ferreira 1992c) on the Monterey Peninsula. The plant occurs in
openings within Monterey pine forest on poorly drained soils consisting
of coarse loamy sands. Trifolium trichocalyx appears to be a fire-
follower, taking advantage of the reduced forest cover for the first
few years after a fire, and then becoming more scarce as it is shaded
out or outcompeted as the forest community recovers. Heller's
collection in 1903 was made 2 years after a fire in the area. Only
scattered individuals were reported by Theodore Niehaus in 1973 and
1979 and by Yadon in 1980 in forest openings or edges (CDFG 1992). One
of these sites is presumed to have been extirpated when Poppy Hills
Golf Course was developed in 1980; the other two are within the
boundaries of the Morse Botanical Reserve.
Surveys for Trifolium trichocalyx were conducted in 1988. No plants
were found at the locations previously reported by Niehaus and Yadon.
However, several hundred to 1,000 plants were scattered throughout the
1987, 80-ha (200-acre) burn near Huckleberry Hill, just to the east of
the historical locations (CDFG 1992). No T. trichocalyx were found
during a 1992 survey of this area, probably because the dense cover of
Pinus radiata (Monterey pine) seedlings and resprouting chaparral
species did not allow the clover to persist. While no living plants of
T. trichocalyx currently exist in native habitat, it is expected that a
seedbank will persist in the soil until they are ``released'' again by
a fire event. Major threats to the continued existence of Trifolium
trichocalyx include alteration of natural fire cycles, a proposed
development that overlaps with the southern portion of the habitat for
the clover (as mapped in 1988), and stochastic extinction due to the
small amount of remaining habitat and the ephemeral nature of the
plant's reappearance after fires.
The black legless lizard was originally described by Fischer in
1885 as Anniella nigra (Fischer 1885 in Murphy and Smith 1991). It
differs from the silvery legless lizard, A. pulchra, in having a darker
dorsum, shorter tail, and longer preanal scales. Currently, the black
legless lizard is considered a subspecies of A. pulchra (Bezy et al.
1977), a species with a range extending from the San Francisco Bay area
south through western California to northern Baja California, Mexico.
Hunt (1983) revised the taxonomy, changing the name of the black
legless lizard to A. nigra nigra and the silvery legless lizard to A.
nigra argenteum. However, this nomenclature was not widely accepted.
The International Commission on Zoological Nomenclature has been
petitioned to conserve the name Anniella pulchra nigra (Murphy and
Smith 1985, 1991); the Commission has not yet responded with an
official position on the subject. The Service accepts the more widely
accepted treatment of the black legless lizard as A. pulchra nigra.
Anniella pulchra nigra has been collected primarily from coastal
areas of the Monterey Peninsula and Monterey Bay between the Salinas
and Carmel Rivers (Bury 1985, Miller 1943). Anniella with dark dorsums,
possibly intergrades with the silvery legless lizard, have been
collected north of the Salinas River and more than 160 km (100 miles)
to the south in the Morro Bay and Pismo Beach areas (Miller 1943); the
taxonomy of Anniella in these intergrade areas is unclear. Miller
(1943) and Bury (1985) considered the black legless lizard to be
restricted to the coastal area between the Salinas and Carmel Rivers.
Bezy and others (1977) showed the black legless lizard as occurring in
the Monterey area and somewhat south, while Stebbins (1985) considered
the distribution of this taxon to be the Monterey Peninsula, Monterey
Bay, and Morro Bay. All of these authors agree that coastal specimens
of Anniella from between the Salinas and Carmel Rivers are black
legless lizards. As a result, this proposal applies only to A. p. nigra
from this area and, specifically, the range of this taxon as described
by Miller (1943) and Bury (1985).
Based on electrophoretic analyses of Anniella pulchra nigra
individuals collected from the vicinity of Asilomar on the Monterey
Peninsula and Fort Ord on Monterey Bay, Bezy and others (1977)
demonstrated that genetic distance between A. p. nigra and A. p.
pulchra was consistent with subspecific classification. Further
electrophoretic work has demonstrated genetic differences between dark
morphs of A. p. pulchra from Morro Bay and the A. p. nigra from the
Monterey Peninsula (Rainey 1984). This latter work also revealed
considerable differences in allele frequencies among sites on the
Monterey Peninsula, indicating genetic subdivisions even within that
limited area. The emergence of a distinct form of Anniella on the
Monterey Peninsula probably occurred when the Peninsula was isolated
from the mainland as an island. Also, the Peninsula at one time
extended farther to the north, providing greater geographic isolation
than at present. In post-Pleistocene times there were also large rivers
and bays in lowland areas which may have further isolated populations
of Anniella (Bury 1985).
The black legless lizard (Anniella pulchra nigra) is a burrowing,
limbless lizard about the diameter of a pencil and reaches a maximum
length of about 23 cm (9 inches). It has a black or dark brown dorsum
(hatchlings are light colored) and is yellow ventrally (Fisher 1934,
Gans et al. 1992, Hunt in prep., Stebbins 1985). This species is
distinguished from the silvery legless lizard (A. p. pulchra) by dark
dorsal coloration, lower dorsal caudal scale count, and a relatively
short tail (Bezy
[[Page 39331]]
et al. 1977, Bury and Corn 1984, Hunt 1983, Miller 1943).
Bury (1985) surveyed most potential habitat for the black legless
lizard, as well as sites as far south as Morro Bay and north to Ano
Nuevo State Reserve in San Mateo County where intergrades might occur.
Black legless lizards were found at 17 sites, all of which lie on or
near approximately 45 km (28 miles) of coastline between the Salinas
and Carmel Rivers. Key sites included City of Monterey lands south of
Salinas River National Wildlife Refuge, Marina State Beach, and Fort
Ord, all on Monterey Bay; and several smaller areas on the Monterey
Peninsula, including dunes or sandy areas at the U.S. Navy Post-
graduate School, Monterey State Beach, Point Pinos, Asilomar State
Beach, Spanish Bay, and Carmel State Beach. The largest population of
the black legless lizard on federal land is on the Fort Ord property.
This military base is undergoing closure; much of the land will be
transferred to State and University ownership, and habitat management
plans that call for the protection of the lizard will be developed.
Within the very limited range of the black legless lizard, habitat
destruction due to urbanization, particularly on the Monterey
Peninsula, has severely reduced the distribution of this lizard. About
60 percent of all localities that historically supported black legless
lizards no longer contain suitable habitat (Lawrence E. Hunt,
University of California, Santa Barbara, pers. comm., 1993). Remaining
habitat is degraded by human trampling, sand mining, vehicular use, and
introduction of exotic plants, particularly Carpobrotus edulis
(hottentot fig) and related species and Ammophila arenaria (Marram
grass). Remaining habitat has also been fragmented by highways and
other forms of development (Bury 1985).
Previous Federal Action
Federal government action on the five plants began as a result of
section 12 of the Endangered Species Act of 1973, which directed the
Secretary of the Smithsonian Institution to prepare a report on those
plants considered to be endangered, threatened, or extinct. This
report, designated as House Document No. 94-51, was presented to
Congress on January 9, 1975. In that report, Astragalus tener var.
titi, Potentilla hickmanii, and Trifolium trichocalyx were recommended
for endangered status. On July 1, 1975, the Service published a notice
in the Federal Register (40 FR 27823) of its acceptance of the report
as a petition within the context of section 4(c)(2) (now section
4(b)(3)(A)) of the Act, and of the Service's intention thereby to
review the status of the plant taxa named therein. The above three taxa
were included in the July 1, 1975 notice. On June 16, 1976, the Service
published a proposal in the Federal Register (42 FR 24523) to determine
approximately 1,700 vascular plant species to be endangered species
pursuant to section 4 of the Act. Astragalus tener var. titi,
Potentilla hickmanii, and Trifolium trichocalyx were included in the
June 16, 1976, Federal Register proposal.
General comments received in relation to the 1976 proposal were
summarized in an April 26, 1978, Federal Register publication (43 FR
17909). The Endangered Species Act Amendments of 1978 required that all
proposals over 2 years old be withdrawn. A 1-year grace period was
given to those proposals already more than 2 years old. In the December
10, 1979, Federal Register (44 FR 70796), the Service published a
notice of withdrawal of the portion of the June 6, 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 82480). This notice included Astragalus tener
var. titi, Potentilla hickmanii, and Trifolium trichocalyx as category-
1 species. Category-1 species are taxa for which data in the Service's
possession are sufficient to support proposals for listing. On November
28, 1983, the Service published in the Federal Register a supplement to
the Notice of Review (48 FR 53640); the plant notice was again revised
September 27, 1985 (50 FR 39526). In both of these notices, Astragalus
tener var. titi, Potentilla hickmanii, and Trifolium trichocalyx were
included as category-2 species. Category-2 species are taxa for which
data in the Service's possession indicate listing may be appropriate,
but for which additional data on biological vulnerability and threats
are needed to support a proposed rule. In the 1985 notice, Cupressus
goveniana ssp. goveniana (as Cupressus goveniana) was also included for
the first time as a category-2 species. On February 21, 1990 (55 FR
6184), the plant notice was again revised, and Astragalus tener var.
titi, Potentilla hickmanii, and Trifolium trichocalyx were included as
category-1 species, primarily because of additional survey information
supplied by the California Natural Diversity Data Base, which indicated
that the extremely limited populations of these taxa made them
particularly vulnerable to impacts from a number of human activities
and naturally caused stochastic events. Those three species also
appeared as category 1 species in the current plant notice of review
(September 30, 1993; 58 FR 51144). Cupressus goveniana ssp. goveniana
was retained as a category-2 species in the 1990 and 1993 notices of
review.
Section 4(b)(3)(B) of the Act requires the Secretary to make
findings on certain pending petitions within 12 months of their
receipt. Section 2(b)(1) of the 1982 amendments further requires that
all petitions pending on October 13, 1982, be treated as having been
newly submitted on that date. This was the case for Astragalus tener
var. titi, Potentilla hickmanii, and Trifolium trichocalyx because the
1975 Smithsonian report was accepted as a petition. 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 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. In October 1984, 1985, 1986, 1987, 1988,
1989, 1990, 1991 and 1992, the Service found that the petitioned
listing of Astragalus tener var. titi, Potentilla hickmanii, and
Trifolium trichocalyx was warranted, but that the listing of these
species was precluded by other pending proposals of higher priority.
Publication of this proposal constitutes the final finding for the
petitioned actions on these three species.
The portion of this proposal to list Piperia yadonii is largely
based on scientific and commercial information on the species,
unpublished reports from the California Department of Fish and Game,
and information submitted by Randall Morgan, which provides sufficient
information to support a proposed rule to list this species as
endangered. Piperia yadonii first appeared as a candidate in the 1993
notice of review (58 FR 51144) in category 1.
A reevaluation of the existing data on the status of Cupressus
goveniana ssp. goveniana and threats to its continued existence
provides sufficient information to support a proposal to list this
species as threatened.
In its original Review of Vertebrate Wildlife, published in the
Federal Register on December 30, 1982 (47 FR 58454), the Service
included the black legless lizard as a category-2 candidate for
listing. Subsequent revised candidate lists published September 18,
1985 (50 FR 37958); January 6, 1989 (54 FR 554); and November 21, 1991
(56 FR
[[Page 39332]]
58804), also included this taxa as a category-2 candidate. New
information on the extent of habitat loss and the effects of
Carpobrotus edulis (hottentot fig) on habitat quality now support a
proposed rule to list this species as endangered.
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 listing
provisions of the Act set forth the procedures for adding species to
the Federal Lists. A species may be determined to be an endangered or
threatened species due to one or more of the five factors described in
section 4(a)(1). These factors and their application to Astragalus
tener Gray var. titi (Eastw.) Barneby (coastal dunes milk-vetch),
Cupressus goveniana Gord. ssp. goveniana (Gowen cypress), Piperia
yadonii Morgan & Ackerman (Yadon's piperia), Potentilla hickmanii
Eastw. (Hickman's potentilla), Trifolium trichocalyx Heller (Monterey
clover), and the black legless lizard (Anniella pulchra nigra Fischer)
are as follows:
A. The Present or Threatened Destruction, Modification, or Curtailment
of its Habitat or Range
Three of the plant taxa-- Astragalus tener var. titi, Potentilla
hickmanii, and Trifolium trichocalyx--occur solely on the Monterey
Peninsula. The largest of two Cupressus goveniana ssp. goveniana stands
occurs on the Monterey Peninsula, as does the largest population of
Piperia yadonii. Habitat for all five plant taxa has been altered,
destroyed, and fragmented by the subdivision of residential lots and
conversion to golf courses and other recreational facilities.
Of the approximately 4,000 hectares (ha) (10,000 acres) of Monterey
Pine forest mapped on the Peninsula by the U.S. Forest Service in the
1930s, less than 10 percent remains. This remaining 10 percent is
comprised of scattered islands of forest, the largest of which are a
few hundred hectares (several hundred acres) in size. The Pebble Beach
Company is currently developing a proposal to convert 277 ha (685
acres) into 17 residential subdivisions, another golf course, and
associated recreational facilities (Pebble Beach Company 1992). Several
of these subdivisions could remove individuals or clumps of Cupressus
goveniana ssp. goveniana that currently survive as islands of native
vegetation within the golf course landscape. A planned subdivision is
adjacent to occurrences of T. trichocalyx and Astragalus tener var.
titi at the Indian Village site. Several of the planned subdivisions
may adversely affect Piperia yadonii.
Additional development in Pebble Beach is currently being planned
that may affect habitat for C. goveniana ssp. goveniana, P. yadonii,
and T. trichocalyx (Pebble Beach Company 1992). A hospice facility, to
be built on lands donated by the Pebble Beach Company and recently
approved by the City of Monterey, will remove a portion of a population
of P. yadonii (Earth Metrics Inc. 1992). Maintenance of facilities,
including mowing of golf courses and roadsides can indirectly affect A.
tener var. titi, P. hickmanii, and P. yadonii.
The black legless lizard was never widely distributed. It is still
extant within its range between the Salinas and Carmel Rivers; however,
much of the coastal sandy plains and dunes that were historic habitat
for this lizard have been converted to urban or other uses,
particularly on the Monterey Peninsula. Although precise estimates are
unavailable, in 1984 Bury found fewer than 35 hectares (86 acres) of
suitable habitat for this species on the Monterey Peninsula (Bury
1985). Another 10 to 14 ha (25 to 35 acres) of potentially suitable
habitat existed near Fan Shell Beach on the Monterey Peninsula but was
not surveyed at the time (R.B. Bury, National Biological Survey, Ft.
Collins, Colorado, pers. comm., 1993). This habitat is still intact,
but remains to be surveyed (T. Moss, Asilomar State Beach, California,
pers. comm., 1993). In reference to the Monterey Peninsula, Bury (1985)
states that ``prior habitat was much more extensive but has been
obliterated by urbanization, roadways, sand mining, and other surface-
modifying activities.''
On Monterey Bay, south of the Salinas River, Bury (1985) identified
about 374 hectares (925 acres) of potential Anniella pulchra nigra
habitat, but nearly all areas examined were impacted by one or more
human uses suspected of negatively impacting legless lizard habitat and
populations, including sand mining, human trampling, military
activities, and off-road vehicle activities. The largest contiguous
tract of black legless lizard habitat exists at Ford Ord, although
estimates on the extent of habitat differ. Estimates of suitable
habitat at Fort Ord vary from 190 hectares (470 acres) (Bury 1985) to
1,206 hectares (2,980 acres) (U.S. Army Corps of Engineers 1993). The
latter figure is based primarily on potentially suitable habitat in
which the presence of the black legless lizard has not been confirmed.
Additional suitable habitat existed in 1984 on unsurveyed private lands
on Monterey Bay, but this habitat was of limited distribution, in very
small parcels, and subject to development (R.B. Bury, pers. comm.,
1992).
Exact amount of habitat loss throughout the range since 1984 has
not been quantified (R.B. Bury, pers. comm., 1993; T. Moss, pers.
comm., 1993). Of 27 localities from which legless lizards have been
collected between the Salinas and Carmel Rivers, only 10 or 11 still
contain suitable habitat (L. E. Hunt, pers. comm., 1993).
Although heavily impacted by military activities, the largest
acreage of remaining suitable habitat for the black legless lizard
identified by Bury (1985) occurs at Fort Ord. This U.S. Army base is
scheduled to be closed, with the closure process occurring over a
period of several years. Activities associated with the closure
process, such as disposal (sale of the land) and clean-up, could
adversely affect the species. The future disposition of the land is
unknown at this time, however, it is likely that some portion of the
base will be acquired by the private sector for development. Planned
development at Sand City, adjacent to Fort Ord, would result in a loss
of black legless lizard habitat, although restoration and long-term
conservation of lands set aside for Smith's blue butterfly (Ephilotes
enoptes smithi), a federally listed endangered species, would enhance
the value of remaining habitat within Sand City for this lizard.
B. Overutilization for Commercial, Recreational, Scientific, or
Educational Purposes
Overutilization is not currently known to be a factor for the five
plant taxa, but unrestricted collecting for scientific or horticultural
purposes or excessive visits by individuals interested in seeing rare
plants could result from increased publicity following publication of
this proposal. Piperia yadonii, like many other orchids and showy-
flowered monocots, may be particularly vulnerable to collecting by
amateur and professional horticulturalists due to the plant's
attractive flower and the ease with which it can be transplanted.
Vandalism is a potential threat for these plant species. The sites
that these plants inhabit could be easily vandalized, resulting in the
destruction of the plants. Many of the sites where these plants exist
are small and easily accessible, increasing their susceptibility to
destruction.
Although the black legless lizard is of interest to many people
because it is an unusual reptile, overutilization does not
[[Page 39333]]
appear to be a factor threatening the species (Bury 1985). The State of
California prohibits taking or possession of black legless lizards
without a special permit (see Factor D). Federal listing could raise
the interest in this animal among reptilian trade markets and increase
the threat of collection. Interest in the species among reptile
collectors could pose a serious threat to populations that contain few
individuals.
C. Disease or Predation
Disease and predation are not known to be factors affecting the
five plant taxa being proposed as endangered. Several references
discuss diseases that affect cypresses (Peterson 1967, Wagener 1948).
However, diseases, such as the oak root fungus (Armillariella mellea)
and the canker-producing strain of Cornyeum, primarily seem to attack
cypresses planted outside of their native range and in nursery settings
(Wagener 1948). No signs of disease or predation have been noted by
biologists familiar with the two Cupressus goveniana ssp. goveniana
stands (Jim Griffin, Research Botanist, Hastings Natural History
Reservation, Carmel Valley, CA, pers. comm., 1992, Yadon, pers. comm.,
1992).
The black legless lizard has no known diseases, and, although it
harbors some internal parasites (Hunt and vanLobenSels in press in Bury
1985), populations of this lizard do not seem to be negatively affected
by either disease or parasites. Many lizards have broken or scarred
tails, indicating possible attempted predation (Bury 1985). Miller
(1944) indicated predation by feral house cats may affect some
populations.
D. The Inadequacy of Existing Regulatory Mechanisms
Under the Native Plant Protection Act (California Fish and Game
Code section 1900 et seq.) and the California Endangered Species Act
(California Fish and Game Code section 2050 et seq.), the California
Fish and Game Commission has listed Astragalus tener var. titi,
Potentilla hickmanii, and Trifolium trichocalyx as endangered. Piperia
yadonii and Cupressus goveniana ssp. goveniana are on List 1B of the
California Native Plant Society's (CNPS) Inventory (CNPS 1992),
indicating that, in accordance with section 1901, of the California
Department of Fish and Game Code, it is eligible for State listing.
Though both the Native Plant Protection Act and the California
Endangered Species Act prohibit the ``take'' of State-listed plants
(section 1908 and section 2080), State law appears to exempt the taking
of such plants via habitat modification or land use change by the
landowner. After the California Department of Fish and Game notifies a
landowner that a State-listed plant grows on his or her property, State
law requires only that the landowner notify the agency ``at least 10
days in advance of changing the land use to allow salvage of such
plant'' (section 1913).
The Pebble Beach Company, the primary landowner on the Monterey
Peninsula, has developed policy to protect sensitive species and
habitats for current management activities, as well as planning of
future development (Fryberger, in litt., 1992). While portions of the
Astragalus tener var. titi population and the Potentilla hickmanii
population have been fenced off, the remaining portions remain
vulnerable to disturbance. No specific protection currently exists for
Piperia yadonii. Cupressus goveniana ssp. goveniana and habitat for T.
trichocalyx are partially protected by the restriction on development
within the Morse Reserve. However, development of a golf course in the
early 1980s removed a significant number of C. goveniana ssp. goveniana
trees and fragmented the remaining habitat. Development is currently
being planned within historical habitat for both of these taxa adjacent
to the Reserve.
A management plan for Point Lobos State Park (California Department
of Parks and Recreation 1979) states that the major management effort
within the preserve will be ``management toward the pristine state,
that is, the state the ecosystem(s) would have achieved if European man
had not interfered,'' but also to provide limited public access to the
Cupressus goveniana ssp. goveniana area. The stand is currently
protected from human disturbance by virtue of its isolation and lack of
public access, but the acquisition of key parcels now in private
ownership may allow for development of limited public access. Any
future development on adjacent private parcels may increase the
vulnerability of C. goveniana ssp. goveniana to human disturbance.
The black legless lizard is listed as a protected reptile under
Section 650 of the California Sport Fishing regulations. Except under
special permit from the California Department of Fish and Game,
collection of black legless lizards is prohibited by the State of
California. The habitat of this species, however, is not specifically
protected by any State or Federal regulation. Land use on black legless
lizard habitat is controlled by local zoning, California State Park
regulations on State parks such as Marina and Monterey State Beaches,
and land management practices on Federal lands, including the Salinas
River National Wildlife Refuge, Fort Ord, and the Naval Post-graduate
School. The black legless lizard is often given special consideration
in land use planning and National Environmental Policy Act and
California Environmental Quality Act compliance documents. The
California Coastal Act regulates approval of developments within the
coastal zone and has slowed the loss of coastal habitats such as the
dunes and sand habitats used by black legless lizards. This species has
also been afforded some protection indirectly through special
management for Federal candidate plant species that occur in coastal
areas. Where the black legless lizard is sympatric with the endangered
Smith's blue butterfly, protection of habitat for the butterfly has
also benefitted the legless lizard.
These regulatory mechanisms have slowed the loss, degradation, and
fragmentation of black legless lizard habitat, but additional
protection is needed to address regional habitat conservation and long-
term survival and recovery of this species.
Sand City is in the process of developing a habitat conservation
plan for a 13 acre area known as East Dunes. This area supports Smith's
blue butterfly (Euphilotes enoptes smithi), Gilia tenuiflora var.
arenaria (sand gilia), Chorizanthe pungens var. pungens (Monterey
spineflower), species that are federally listed as endangered, and the
black legless lizard. Sand City is including the black legless lizard
in this planning process, and it is likely that the plan would
adequately provide for the conservation needs of the lizard on this one
site.
E. Other Natural or Manmade Factors Affecting Its Continued Existence
Two of the five plant taxa occur in small patches of meadow habitat
containing a high percentage of non-native taxa. Along 17-Mile Drive,
Astragalus tener var. titi occurs with the non-native Plantago
coronopus (cut-leaf plantain) and Carpobrotus edulis. These non-native
species spread rapidly and compete aggressively with native species for
space. The Pebble Beach Company has an active C. edulis eradication
program in and adjacent to the exclosure on the ocean side of 17-Mile
Drive. However, C. edulis has been planted and is being maintained
within a few feet of the unfenced portion of the milk-vetch habitat on
the inland side of 17-Mile Drive, and P. coronopus, a prolific seeder,
is physically crowding
[[Page 39334]]
out native species on both sides of 17-Mile Drive (Ferreira 1992a).
The only population of Potentilla hickmanii occurs at Indian
Village, where Ferreira (1992b) noted four non-native grass taxa
associated with the potentilla at this site: Aira caryophylla, Bromus
mollis, Festuca arundinacea, and Lolium multiflorum. The Festuca may
have been introduced in a ``meadow mix'' used on adjacent fairways; its
stature and invasiveness appear to offer competition to the potentilla.
Plantago coronopus is also present at this site.
Cortaderia atacamensis (pampasgrass) and Cytisus sp. (genesta) are
two other alien plant taxa that compete with native species on the
Monterey Peninsula. The Pebble Beach Company has an on-going
eradication program for these two taxa in the Huckleberry Hill area
adjacent to the Cupressus goveniana ssp. goveniana. However, numerous
fire roads provide open habitat for these invasive taxa and it is
unlikely that they will ever be completely eradicated from the area.
Nearly all occupied or potentially occupied black legless lizard
localities have substantial populations of exotic plants, particularly
Carpobrotus edulis (hottentot fig). Legless lizards are primarily
associated with moist soil and leaf litter under native vegetation such
as Lupinus albifrons (bush lupine), Haplopappus ericoides (mock
heather), and Artemisia sp. (sagewort), and are less abundant in areas
dominated by C. edulis (Bury 1985, City of Sand City 1992, Miller 1944,
Morey 1988, Stebbins 1954). As part of habitat restoration efforts at
Asilomar State Beach, over 12 hectares (30 acres) of C. edulis were
removed by hand. During this effort, black legless lizards were not
found in pure stands of C. edulis, but were encountered where native
shrubs were mixed with the hottentot fig (T. Moss, pers. comm., 1993).
Hottentot fig may negatively affect insect populations, the prey base
for the black legless lizard (Miller 1944, Stebbins 1954), and thus,
adversely affect Anniella populations (Bury 1985).
Fire plays an important role in the regeneration of all cypress
taxa. Alteration of the natural fire cycle may negatively affect
Cupressus goveniana ssp. goveniana regeneration. Fire is essential
since it opens cones that otherwise remain unopened on the trees, and
it creates conditions appropriate for seedling establishment (Vogl et
al. 1988).
Griffin (pers. comm., 1992) and Ferreira (1992c) have noted that
establishment of Pinus radiata (Monterey pine) seedlings after the 1987
fire has been so vigorous that the pine may be expanding its range at
the expense of Cupressus goveniana ssp. goveniana. Yadon (retired
Director, Pacific Grove Museum of Natural History, pers. comm., 1992)
believes that the pine's preference for richer soils than those that
support C. goveniana ssp. goveniana would prevent long-term
establishment of pines in C. goveniana ssp. goveniana habitat.
Alteration of habitat due to continuing recreational use of
portions of Pebble Beach threaten the precipitously small populations
of Astragalus tener var. titi, and Potentilla hickmanii. Trampling by
humans and horses can affect these taxa directly, as well as alter soil
compaction and erodability such that non-native taxa increase at the
expense of native taxa.
At least three, and possibly all, of the five plant taxa are
threatened with stochastic extinction by virtue of the limited number
of individuals and/or range of the existing populations. Inbreeding may
affect small populations, making local extirpations more likely from
the inability to produce viable offspring in sufficient numbers. Small
populations are also vulnerable to extinction by a single human-caused
or natural event. While annual plant taxa, such as Astragalus tener
var. titi, will undergo radical fluctuations in population size, the
long-term perpetuation of this taxa depends on maintaining seed
production at some critical level, and maintaining appropriate habitat
for population expansion. While short-lived perennial taxa like Piperia
yadonii and Potentilla hickmanii may be able to persist through a few
climatically unfavorable years, it is still essential to maintain
critical seed production levels and to maintain appropriate habitat.
Trifolium trichocalyx exemplifies a taxon that may persist only as a
seedbank for years until released by a fire event. Maintaining habitat
and certain fire management prescriptions may be required to prevent
the extinction of this species.
The range occupied by Cupressus goveniana ssp. goveniana is
considered extremely small; only Cupressus abramsiana (Santa Cruz
cypress) and C. macrocarpa (Monterey cypress) have stands that occupy
as few hectares (acres) as C. goveniana ssp. goveniana (Griffin and
Critchfield 1976). Apparently the 1901 fire on Huckleberry Hill reduced
C. goveniana ssp. goveniana to only a few hectares. Though later
observers commented on the extent of recolonization after the fire
(Dunning 1906 in Vogl et al. 1988, Wolf 1948), the reduction in genetic
variability from such events may leave species unable to adapt to
changing environmental conditions (Brussard 1985, Menges 1990, Shaffer
1981).
Existing black legless lizard habitat is severely fragmented due to
construction of roads, golf courses, and other urban development that
creates barriers to movement and isolates populations. Some extant
populations are restricted to extremely small habitat patches, such as
at Monterey State Beach and the U.S. Navy Post-Graduate School, where a
population persists on a remnant 0.5-hectare (1.2-acre) habitat patch
(Bury 1985). Because of small size, these fragmented populations have
an increased probability of extinction from stochastic (i.e., random)
events (Wilcox and Murphy 1985). Once extirpated, isolation can prevent
recolonization of these habitat patches (Frankel and Soule 1981).
The black legless lizard exhibits relatively low fecundity and it
is suspected that not all adult females breed each year (Goldberg and
Miller 1985, Miller 1944). The related silvery legless lizard has a 4
month gestation period, and produces only 1 or 2 eggs per adult female
per year (Goldberg and Miller 1985). Similarly, an average of 1.7 eggs
were found in the oviducts of black legless lizards (Miller 1944). This
low reproductive potential implies relatively long population recovery
times and a heightened sensitivity to habitat impacts such as off-road
vehicles, trampling, and other disturbances.
Strong storms and extreme high tides periodically occur at Monterey
Bay. These high tides can result in erosion of coastal dunes and
shorelines, causing destruction of habitat and mortality of black
legless lizards. Without adjacent refugia, such habitats can become
devoid of lizards with little chance of recolonization. Because of the
fragmented distribution and relatively low reproductive potential of
the black legless lizard, these natural events may increase the chance
of local extirpations.
As mentioned in Factor A, the alien plant Carpobrotus edulis may
negatively impact native insect populations that provide prey for
Anniella species (Miller 1944) and that could conceivably affect
Anniella populations (Bury 1985).
The Service has carefully assessed the best scientific and
commercial information available regarding the past, present, and
future threats faced by these species in determining to propose this
rule. Based on this evaluation, the Service finds that Astragalus tener
var. titi, Piperia yadonii, Potentilla
[[Page 39335]]
hickmanii, Trifolium trichocalyx, and the black legless lizard are in
imminent danger of extinction throughout all or a significant portion
of their ranges. Threats to these four taxa include one or more of the
following: habitat destruction, residential development, road
maintenance activities, competition from alien plants, alteration of
natural fire cycles, military activities, and extinction from
stochastic events.
For the reasons discussed above, the Service finds that Cupressus
goveniana ssp. goveniana is likely to become endangered within the
foreseeable future throughout all or a significant portion of its range
due to habitat alteration and destruction, urban development,
disruption of natural fire cycles, competition from alien plants, and
stochastic events. The Service has determined that threatened rather
than endangered status is appropriate for C. goveniana ssp. goveniana
primarily because one of two populations (the Gibson Creek stand
managed by the California Department of Parks and Recreation) has not
been significantly affected by human activities. Also, since it is
long-lived, C. goveniana ssp. goveniana may be able to withstand a
certain level of habitat disturbance as long as sufficient habitat is
maintained. Other alternatives to this action were considered but not
preferred because not listing this species at all would not provide
adequate protection and not be in keeping with the purposes of the Act,
and listing it as endangered would not be appropriate, as the
California Department of Parks and Recreation has decreased the danger
of extinction at the present time. Therefore, the preferred action is
to propose Astragalus tener var. titi, Piperia yadonii, Potentilla
hickmanii, Trifolium trichocalyx, and the black legless lizard as
endangered; and Cupressus goveniana ssp. goveniana as threatened.
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 the taxa are determined to be endangered
or threatened. Critical habitat results in additional protection to a
species' habitat with respect to projects that are federally
authorized, funded, or carried out, through the consultation
requirements described in section 7 of the Act. The Service finds that
designation of critical habitat is not presently prudent for these
taxa. The Service's regulations (50 CFR 424.12(a)(1)) state that
designation of critical habitat is not prudent when one or both of the
following situations exist: (1) the species is imperiled by taking or
other human activity, and identification of critical habitat can be
expected to increase the degree of such threat to the species; or (2)
such designation of critical habitat would not be beneficial to the
species.
In the case of Astragalus tener var. titi, Potentilla hickmanii,
Piperia yadonii, Cupressus goveniana ssp. goveniana, Trifolium
trichocalyx, and the black legless lizard both criteria are met. The
publication of critical habitat descriptions and maps required in a
proposal for critical habitat could increase the degree of threat to
these six taxa from possible take or vandalism and, therefore, could
contribute to their decline and increase enforcement problems. These
six taxa occur within small areas at few locations and are vulnerable
to stochastic extinction. The listing of these plants and the lizard as
either endangered or threatened publicizes the rarity of the taxa and
thus can make them attractive to researchers, curiosity seekers, or
collectors of rare plants or animals.
A determination of critical habitat would result in no known
benefit to these taxa. The closure of Fort Ord is resulting in the
transfer of lands to State Parks and the University of California at
Santa Cruz ownership. These lands will be designated as protected
habitats for which habitat management plans are under development.
Other than the Fort Ord property, most of the known populations of
these species are found on state or private lands where Federal
involvement in land-use activities does not generally occur. Additional
protection resulting from critical habitat designation is achieved
through the section 7 consultation process. Since section 7 would not
apply to land-use activities occurring on State and private lands and
Fort Ord will designate protected habitats for these species, critical
habitat designation would not appreciably benefit these species.
All Federal and State agencies involved and local major land owners
and planning agencies have been notified of the general location and
importance of protecting these species' habitat. Protection of these
species' habitat will be addressed through the recovery process and
through the section 7 consultation process. Therefore, the Service
finds that designation of critical habitat for these species is not
prudent at this time.
Available Conservation Measures
Conservation measures provided to species listed as endangered or
threatened under the Endangered Species Act include recognition,
recovery actions, requirements for Federal protection, and prohibitions
against certain activities. Recognition through listing encourages and
results in conservation actions by Federal, State, and private
agencies, groups, and individuals. The Endangered Species Act provides
for possible land acquisition and cooperation with the States and
requires that recovery actions be carried out for all listed species.
Such actions are initiated by the Service following a listing. The
protection required of Federal agencies and the prohibitions against
certain activities involving listed plants are discussed, in part,
below.
Section 7(a) of the Act, as amended, requires Federal agencies to
evaluate their actions with respect to any species that is proposed or
listed as endangered or threatened and with respect to its critical
habitat, if any is being designated. Regulations implementing this
interagency cooperation provision of the Act are codified at 50 CFR
Part 402. Section 7(a)(4) of the Act requires Federal agencies to
confer informally with the Service on any action that is likely to
jeopardize the continued existence of a proposed species or result in
destruction or adverse modification of proposed critical habitat. If a
species is listed subsequently, section 7(a)(2) requires Federal
agencies to insure that activities they authorize, fund, or carry out
are not likely to jeopardize the continued existence of such a species
or to destroy or adversely modify its critical habitat. If a Federal
action may affect a listed species or its critical habitat, the
responsible Federal agency must enter into formal consultation with the
Service.
Two of the taxa, Piperia yadonii (Yadon's piperia) and the black
legless lizard, occur within the boundaries of Fort Ord. Military
training activities may affect these taxa and their habitat as could
the Federal decision for the ultimate disposition of this property. The
Department of Defense would be required to consult with the Service on
actions that may affect these two species. Other Federal lands that
support habitat for the black legless lizard include the Salinas
National Wildlife Refuge and the Naval Post-graduate School in
Monterey; however, there are no currently proposed activities on those
lands that would affect the lizard. Urban development projects that are
occurring on private lands may require permits from Federal agencies,
such as section 404 permits from the Army Corps of Engineers.
The Act and its implementing regulations found at 50 CFR 17.61,
17.62, and 17.63 for endangered plants,
[[Page 39336]]
and at 50 CFR 17.71 and 17.72 for threatened plants set forth a series
of general prohibitions and exceptions that apply to all endangered or
threatened plants. With respect to the four plant taxa proposed to be
listed as endangered, all trade prohibitions of section 9(a)(2) of the
Act, implemented by 50 CFR 17.61 and 17.71, would apply. These
prohibitions, in part, make it illegal with respect to any endangered
plant for any person subject to the jurisdiction of the United States
to import or export; transport in interstate or foreign commerce in the
course of a commercial activity; sell or offer for sale these species
in interstate or foreign commerce; remove and reduce to possession the
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 endangered plant
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. Cupressus goveniana ssp. goveniana (Gowen cypress),
proposed to be listed as threatened, would be subject to similar
prohibitions (16 U.S.C. 1538(a)(2)(E); 50 CFR 17.61, 17.71).
Seeds from cultivated specimens of threatened plant species are
exempt from these prohibitions provided that a statement of
``cultivated origin'' appears on their containers. Certain exceptions
apply to agents of the Service and State conservation agencies. The Act
and 50 CFR 17.62, 17.63, and 17.72 also provide for the issuance of
permits to carry out otherwise prohibited activities involving
endangered or threatened plant species under certain circumstances.
Several central coast nurseries have cultivated Cupressus goveniana
ssp. goveniana on occasion, but it apparently is not popular enough to
be kept in stock on a regular basis. The Pebble Beach Company is
actively cultivating this plant to be used in efforts to restore
disturbed habitat (Fryberger, in litt., 1992).
The Act and implementing regulations found at 50 CFR 17.21 set
forth a series of general prohibitions and exceptions that apply to all
endangered wildlife. With respect to the black legless lizard, these
prohibitions, in part, would make it illegal for any person subject to
the jurisdiction of the United States to take (including harass, harm,
pursue, hunt, shoot, wound, kill, trap, capture, collect, or attempt
any such conduct), import or export, transport in interstate or foreign
commerce in the course of commercial activity, or sell or offer for
sale in interstate or foreign commerce any listed wildlife species. It
also is illegal to possess, sell, deliver, carry, transport, or ship
any such wildlife that has been taken illegally. Certain exceptions
apply to agents of the Service and State conservation agencies.
Permits may be issued to carry out otherwise prohibited activities
involving endangered wildlife species under certain circumstances.
Regulations governing permits are at 50 CFR 17.22 and 17.23. Such
permits are available for scientific purposes, to enhance the
propagation or survival of the species, and for incidental take in
connection with otherwise lawful activities.
Requests for copies of the regulations on listed plants and
wildlife and inquiries regarding them may be addressed to the U.S. Fish
and Wildlife Service, Permits Branch, 911 N.E. 11th Avenue, Portland,
OR 97232-4181 (telephone 503/231-6241, facsimile 503/231-6243).
Public Comments Solicited
The Service intends that any final action resulting from this
proposal will be as accurate and as effective as possible. Therefore,
comments or suggestions from the public, other concerned governmental
agencies, the scientific community, industry, or any other interested
party concerning this proposed rule are hereby solicited. Comments
particularly are sought concerning:
(1) Biological, commercial trade, or other relevant data concerning
any threat (or lack thereof) to these species;
(2) The location of any additional populations of these species and
the reasons why any habitat should or should not be determined to be
critical habitat as provided by section 4 of the Act;
(3) Additional information concerning the range, distribution, and
population size of these species; and
(4) Current or planned activities in the subject area and their
possible impacts on these species.
The final decision on this proposal will take into consideration
the comments and any additional information received by the Service,
and such communications may lead to a final regulation that differs
from this proposal.
The Endangered Species Act provides for a public hearing on this
proposal, if requested. Requests must be received by September 25,
1995. Such requests must be made in writing and addressed to the Field
Supervisor of the Ventura Field Office (see ADDRESSES section).
National Environmental Policy Act
The Fish and Wildlife Service has determined that an Environmental
Assessment, as defined under the authority of the National
Environmental Policy Act of 1969, need not be prepared in connection
with regulations adopted pursuant to section 4(a) of the Endangered
Species Act of 1973, as amended. A notice outlining the Service's
reasons for this determination was published in the Federal Register on
October 25, 1983 (48 FR 49244).
References Cited
A complete list of all references cited herein is available upon
request from the Ventura Field Office (see ADDRESSES section).
Authors
The primary authors of this notice are Constance Rutherford and
James Rorabaugh, Ventura Field Office (see ADDRESSES section).
List of Subjects in 50 CFR Part 17
Endangered and threatened species, Exports, Imports, Reporting and
recordkeeping requirements, and Transportation.
Proposed Regulations Promulgation
PART 17--[AMENDED]
Accordingly, it is hereby proposed to amend part 17, subchapter B
of chapter I, title 50 of the Code of Federal Regulations, as set forth
below:
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. It is proposed to amend Sec. 17.11(h) by adding the following,
in alphabetical order under REPTILES, to the List of Endangered and
Threatened Wildlife:
Sec. 17.11 Endangered and threatened wildlife.
* * * * *
(h) * * *
[[Page 39337]]
--------------------------------------------------------------------------------------------------------------------------------------------------------
Species Vertebrate
---------------------------------------------------------- population
where Critical Special
Historic range endangered When listed Status habitat rules
Common name Scientific name or
threatened
--------------------------------------------------------------------------------------------------------------------------------------------------------
* * * * * * *
Reptiles
* * * * * * *
Lizard, black legless....... Anniella pulchra nigra..... U.S.A. (CA)................ Entire ........... E NA NA
* * * * * * *
--------------------------------------------------------------------------------------------------------------------------------------------------------
3. 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
Scientific name Common name habitat rules
--------------------------------------------------------------------------------------------------------------------------------------------------------
Flowering Plants
* * * * * * *
Astragalus tener var. Coastal dunes milk- U.S.A. (CA)............ Fabaceae............... E ........... NA NA
titi. vetch.
* * * * * * *
Cupressus goveniana ssp. Gowen cypress.......... U.S.A. (CA)............ Cupressaceae........... T ........... NA NA
goveniana.
* * * * * * *
Piperia yadonii......... Yadon's piperia........ U.S.A. (CA)............ Orchidaceae............ E ........... NA NA
* * * * * * *
Potentilla hickmanii.... Hickman's potentilla... U.S.A. (CA)............ Rosaceae............... E ........... NA NA
* * * * * * *
Trifolium trichocalyx... Monterey clover........ U.S.A. (CA)............ Fabaceae............... E ........... NA NA
* * * * * * *
--------------------------------------------------------------------------------------------------------------------------------------------------------
Dated: December 30, 1994.
Mollie H. Beattie,
Director, U.S. Fish and Wildlife Service.
Editorial note: This document was received at the Office of the
Federal Register on July 27, 1995.
[FR Doc. 95-18811 Filed 8-1-95; 8:45 am]
BILLING CODE 4310-55-P