[Federal Register Volume 60, Number 188 (Thursday, September 28, 1995)]
[Proposed Rules]
[Pages 50176-50180]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-24014]



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DEPARTMENT OF THE INTERIOR
50 CFR Part 17

RIN 1018-AD48


Endangered and Threatened Wildlife and Plants; Proposed 
Endangered Status for the Plant Cordia Bellonis

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Proposed rule.

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SUMMARY: The Fish and Wildlife Service (Service) proposes to determine 
Cordia bellonis (no common name) to be endangered pursuant to the 
Endangered Species Act (Act) of 1973, as amended. This shrub is endemic 
to Puerto Rico and restricted to three public forests: Maricao, Susua, 
and Rio Abajo. The species is threatened by habitat loss, some forest 
management practices, and restricted distribution. This proposal, if 
made final, would implement the Federal protection and recovery 
provisions afforded by the Act for Cordia bellonis.

DATES: Comments from all interested parties must be received by 
November 27, 1995. Public hearing requests must be received by November 
13, 1995.

ADDRESSES: Comments and materials concerning this proposal should be 
sent to the Field Supervisor, Caribbean Field Office, U.S. Fish and 
Wildlife Service, P.O. Box 491, Boqueron, Puerto Rico 00622. Comments 
and materials received will be available for public inspection, by 
appointment, at this office during normal business hours, and at the 
Service's Southeast Regional Office, 1875 Century Boulevard, Atlanta, 
Georgia 30345.

FOR FURTHER INFORMATION CONTACT: Ms. Marelisa Rivera at the Caribbean 
Field Office address (809/851-7297) or Mr. William C. Hunter at the 
Atlanta Regional Office address (404/679-7130).

SUPPLEMENTARY INFORMATION:

Background

    Cordia bellonis was described by Urban in 1899 from specimens 
collected by Paul Sintenis at ``Monte Alegrillo'' in the municipality 
of Maricao, Puerto Rico (Urban 1899). The name of ``Monte Alegrillo'' 
has disappeared from use, but according to Proctor (1991), N.L. Britton 
referred to ``Monte Alegrillo'' as the peak at the extreme head of the 
Rio Maricao, with an elevation of 900 meters (2,953 feet). This type 
location was developed for the installation of telecommunication 
towers. Paul Sintenis collected Cordia bellonis in the area known as 
Indiera Fria. The species was also collected by Britton and Brown in 
1915 from Monte Cerrote near Adjuntas (Proctor 1991). Britton and 
Wilson (1925) described the species as 

[[Page 50177]]
Varronia bellonis and identified its distribution as mountain-sides in 
the vicinity of Maricao. Liogier and Martorell (1982) stated that the 
species distribution was the mountain slopes and serpentine hills in 
northwestern districts of Puerto Rico. Proctor (1991) reported only 4 
individuals of Cordia bellonis from Cain Alto Ward in the Maricao 
Commonwealth Forest. Breckon and Kolterman (1993) reported 87 
individuals at 17 localities in three areas in Maricao. Half of the 
localities consist of isolated individuals.
    The species was reported for the first time in Susua in 1992, where 
a small population of 5 individuals was found (Breckon and Kolterman 
1993). Cordia bellonis was also unknown from the Rio Abajo Commonwealth 
Forest until 1994 (Federal Highway Administration and Puerto Rico 
Highway and Transportation Authority 1994). Approximately 116 
individuals were found in 12 localities. Eighty-seven (75 percent) of 
these individuals were removed to a nursery (for possible 
transplantation) because of the construction of the road PR 10 (PR 
Highway and Transportation Authority 1995).
    Cordia bellonis has been found in serpentine soils at Maricao and 
Susua at road edges, river margins, and on steep slopes (Breckon and 
Kolterman 1993). In Rio Abajo Forest, the species was found either on 
sunny banks along dirt roads growing in thickets of vegetation or in 
open saddles between limestone hills (Federal Highway Administration 
and Puerto Rico Highway and Transportation Authority 1994).
    Cordia bellonis is an arching to erect shrub of about 1 to 2 meters 
(3.3 to 6.6 feet) high with very slender twigs appressed-puberulous. 
The leaves are alternate, oblong to oblong-lanceolate, chartaceous, 2 
to 6 centimeters (0.79 to 2.36 inches) long, usually 2.5 to 3 times 
longer than wide, finely scabrous on upper side, and puberulous 
beneath. The apex is acute, the base acute or obtuse, the margins are 
dentate on the apical third, and the petioles are 2 to 7 millimeters 
(0.08 to 0.28 inches) long. The inflorescence is axillary, 
subglomerate, nearly sessile, and few-flowered. The calyx in bud is 
globose-obovoid, 2 millimeters (0.08 inches) long, appressed-
puberulous, and with 4 triangular lobes. The corolla is white with 4 
subcylindric lobes. The drupe is ovoid, pointed and 5 millimeters (0.20 
inches) in length (Proctor 1991). Flowers are unisexual and the plants 
are dioecious (Breckon and Kolterman 1993).
    The species is threatened by habitat destruction and modification, 
forest management practices, and restricted distribution. Seventy-five 
percent of the individuals known from Rio Abajo Commonwealth Forest 
were removed from the forest for the construction of a highway. Breckon 
and Kolterman (1994) reported that 14 individuals from Maricao appeared 
to have been eliminated due to clearing along the roadside of the 
forest. Restricted distribution and its dioecious condition would be a 
limiting factor for the species. The dioecious condition would require 
outcrossing, and would pose a threat to a rare plant species. 
Furthermore, in a large number of the localities where the species is 
found, the shrub occurred as isolated individuals.
    Cordia bellonis was designated a category 2 candidate species 
(species for which information in the possession of the Service 
indicates that proposing to list as endangered or threatened is 
possibly appropriate, but for which sufficient data on biological 
vulnerability and threat are not currently available to support 
proposed rules) in the Federal Register notice of review for plant taxa 
dated September 30, 1993 (58 FR 51144). The species was recommended for 
listing by Proctor (1991) in a Status Report prepared for the species. 
In further studies conducted for the species, Breckon and Kolterman 
(1993) also recommended the species for listing. Cordia bellonis is 
considered a critical plant by the Natural Heritage Program of the 
Puerto Rico Department of Natural and Environmental Resources.

Summary of Factors Affecting the Species

    Section 4 of the Endangered Species Act 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 Cordia bellonis Urban [Varronia 
bellonis (Urban) Britton], are as follows:
    A. The present or threatened destruction, modification, or 
curtailment of its habitat or range. Destruction and modification of 
the habitat may be one of the most significant factors affecting the 
numbers and distribution of Cordia bellonis. This species is only known 
from three areas in Puerto Rico; Maricao, Susua, and Rio Abajo. In 
Maricao, the species is found at 17 localities in three areas, for a 
total of 87 individuals. Fourteen of these individuals have been 
eliminated due to clearing along the roadside. Half of the localities 
consist of isolated individuals. The dioecious condition of the species 
would be a factor limiting reproduction by these individuals. Because 
the majority of these individuals occur along both sides of two public 
roads, maintenance of road sides, as well as fires and vandalism, would 
result in the loss of these individuals.
    In Susua, a small population of only 5 individuals was found in 
1992. The species was previously unknown from this area. This small 
population may be affected by forest management practices. Cordia 
bellonis was also unknown from the Rio Abajo forest until 1994. 
Approximately 116 individuals were found in 12 localities. The 
localities, each consisting of no more than a few individuals, were 
scattered along a proposed highway. All the individuals along the 
proposed route have been removed for possible future transplantation 
(87 individuals). An area designated for compensation (mitigation) for 
the proposed highway presently supports eight of the remaining 29 
individuals from the original population (116 individuals). The species 
is also known from a private landholding where extraction of fill 
material for the construction of the road will likely result in the 
loss of these plants. The rareness and restricted distribution make 
this species very vulnerable to habitat destruction and modification.
    B. Overutilization for commercial, recreational, scientific, or 
educational purposes. Taking for these purposes has not been a 
documented factor in the decline of this species.
    C. Disease or predation. Disease and predation have not been 
documented as factors in the decline of this species.
    D. The inadequacy of existing regulatory mechanisms. The 
Commonwealth of Puerto Rico has adopted a regulation that recognizes 
and provides protection to certain Commonwealth listed species. Cordia 
bellonis, however, is not yet on the Commonwealth list. Federal listing 
would provide immediate protection and, if the species is ultimately 
placed on the Commonwealth list, enhance its protection and 
possibilities for funding needed for research.
    E. Other natural or manmade factors affecting its continued 
existence. Two significant factors affecting this species are its 
limited distribution and dioecious condition. The limited distribution 
of this species makes it particularly vulnerable to extinction from 
catastrophic events and local land management practices. As a dioecious 
plant, Cordia bellonis requires 

[[Page 50178]]
outcrossing to successfully reproduce. Being dioecious creates a 
serious limiting factor affecting the continued existence of this rare 
plant since most known individuals are widely separated from each other 
and, therefore, unlikely to reproduce.
    The Service has carefully assessed the best scientific and 
commercial information available regarding the past, present, and 
future threats faced by this species in determining to propose this 
rule. Based on this evaluation, the preferred action is to list Cordia 
bellonis as endangered. The rarity of this plant and the loss of any 
individual makes the species ever more vulnerable to extinction. Only 
121 individuals of Cordia bellonis are known to occur in the wild. 
Cutting and habitat modification may dramatically affect this endemic 
plant. Therefore, endangered rather than threatened status seems an 
accurate assessment of the species' condition. The reasons for not 
proposing critical habitat for this species are discussed in the 
``Critical Habitat'' section of this rule.

Critical Habitat

    Critical habitat is defined in section 3 of the Act as: (i) The 
specific areas within the geographical area occupied by a species, at 
the time it is listed in accordance with the Act, on which are found 
those physical or biological features (I) essential to the conservation 
of the species and (II) that may require special management 
considerations or protection and; (ii) specific areas outside the 
geographical area occupied by a species at the time it is listed, upon 
a determination that such areas are essential for the conservation of 
the species. ``Conservation'' means the use of all methods and 
procedures needed to bring the species to the point at which listing 
under the Act is no longer necessary.
    Section 4(a)(3) of the Act, as amended, and implementing 
regulations (50 CFR 424.12) require that, to the maximum extent prudent 
and determinable, the Secretary designate critical habitat at the time 
the species is determined to be endangered or threatened. The Service 
finds that designation of critical habitat is not prudent for Cordia 
bellonis. Service 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 threatened by taking or 
other human activity, and identification of critical habitat can be 
expected to increase the degree of threat to the species, or (2) such 
designation of critical habitat would not be beneficial to the species.
    The number of populations of Cordia bellonis is sufficiently small 
and accessible. Vandalism and cutting could seriously affect the 
survival of the species. Publication of critical habitat descriptions 
and maps in the Federal Register would increase the likelihood of such 
activities. The Service believes that Federal involvement in the areas 
where these plants occur can be identified without the designation of 
critical habitat. All involved parties and landowners have been 
notified of the location and importance of protecting this species' 
habitat. Protection of this species' habitat will also be addressed 
through the recovery process and through the section 7 jeopardy 
standard. The precarious status of Cordia bellonis necessitates 
identical thresholds for determining adverse modification of critical 
habitat and jeopardizing the continued existence of the species. 
Therefore, no benefit from designating critical habitat would occur for 
this species.

Available Conservation Measures

    Conservation measures provided to species listed as endangered or 
threatened under the Endangered Species Act include recognition, 
recovery actions, requirements for Federal protection, and prohibitions 
against certain practices. Recognition through listing encourages and 
results in conservation actions by Federal, Commonwealth, and private 
agencies, groups, and individuals. The Act provides for possible land 
acquisition and cooperation with the States and requires that recovery 
actions be carried out for all listed species. The protection required 
of Federal agencies and the prohibitions against certain activities 
involving listed plants are discussed, in part, below.
    Section 7(a) of the Act, as amended, requires Federal agencies to 
evaluate their actions with respect to any species that is proposed or 
listed as endangered 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) requires Federal agencies to confer with the 
Service on any action that is likely to jeopardize the continued 
existence of a species proposed for listing 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 
ensure that activities they authorized, fund, or carry out are not 
likely to jeopardize the continued existence of the species or destroy 
or adversely modify its critical habitat. If a Federal action may 
adversely affect a listed species or its critical habitat, the 
responsible Federal agency must enter into formal consultation with the 
Service.
    The majority of the populations of Cordia bellonis known from 
Maricao are found along both sides of roads PR #120 and PR #362. Any 
widening of these roads, installation of water and sewer pipelines, and 
the installation of powerlines along these roads may adversely affect 
the species. These activities could be funded by Federal agencies (for 
example, the Federal Highway Administration, U.S. Housing and Urban 
Development, or Farmer's Home Administration). Cordia bellonis was 
seriously affected by the construction of a highway in the Rio Abajo 
Commonwealth Forest. This road was funded by the Federal Highway 
Administration and 75 percent of the individuals of Cordia bellonis 
were removed from the Forest for possible future transplantation.
    The Act and its implementing regulations set forth a series of 
general prohibitions and exceptions that apply to all endangered 
plants. All prohibitions of section 9(a)(2) of the Act, implemented by 
50 CFR 17.61, apply. These prohibitions, in part, make it illegal 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 in interstate or foreign 
commerce, or remove and reduce the species to possession from areas 
under Federal jurisdiction. In addition, for plants listed as 
endangered, the Act prohibits the malicious damage or destruction on 
areas under Federal jurisdiction and the removal, cutting, digging up, 
or damaging or destroying of such plants in knowing violation of any 
State law or regulation, including State criminal trespass law. Certain 
exceptions to the prohibitions apply to agents of the Service and State 
conservation agencies.
    The Act and 50 CFR 17.62 and 17.63 also provide for the issuance of 
permits to carry out otherwise prohibited activities involving 
endangered plants under certain circumstances. Such permits are 
available for scientific purposes and to enhance the propagation or 
survival of the species. Few trade permits for this plant will ever be 
sought or issued, since the species is not known to be in cultivation 
and is uncommon in the wild. Requests for copies of the regulations on 
listed species and inquiries about prohibitions and permits may be 
addressed to 

[[Page 50179]]
Service's Southeast Regional Office, 1875 Century Boulevard, Atlanta, 
Georgia 30345.
    It is the policy of the Service, published in the Federal Register 
on July 1, 1994 (50 FR 34272), to identify to the maximum extent 
practicable those activities that would or would not constitute a 
violation of section 9 of the Act at the time of listing. The intent of 
this policy is to increase public awareness of the effect of listing on 
proposed or ongoing activities. The only known populations of Cordia 
bellonis are restricted to three Commonwealth forests: Maricao, Susua 
and Rio Abajo. Since there is no Federal ownership, and the species is 
not currently in trade, the only potential section 9 involvement would 
relate to removing or damaging the plant in knowing violation of 
Commonwealth criminal trespass law. Section 15.01(b) of the 
Commonwealth ``Regulation to Govern the Management of Threatened and 
Endangered Species in the Commonwealth of Puerto Rico'' states: ``It is 
illegal to take, cut, mutilate, uproot, burn or excavate any endangered 
plant species or part thereof within the jurisdiction of the 
Commonwealth of Puerto Rico.'' The Service is not aware of any 
otherwise lawful activities being conducted or proposed by the public 
that will be affected by this listing and result in a violation of 
section 9.
    Questions regarding whether specific activities will constitute a 
violation of section 9 should be directed to the Field Supervisor of 
the Service's Caribbean Field Office (see ADDRESSES section). Requests 
for copies of the regulations on listed species and inquiries regarding 
prohibitions and permits should be addressed to the U.S. Fish and 
Wildlife Service, Ecological Services (TE), 1875 Century Boulevard, 
Atlanta, Georgia 30345-3301 (404/679-7096).

Public Comments Solicited

    The Service intends that any final action resulting from this 
proposal will be as accurate and as effective as possible. Therefore, 
any comments or suggestions from the public, other concerned 
governmental agencies, the scientific community, industry, or any other 
interested party concerning any aspect of 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 this species;
    (2) The location of any additional populations of this plant 
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 this species;
    (4) Current or planned activities in the subject areas and their 
possible impacts on this species.
    Final promulgation of a regulation(s) on this species will take 
into consideration the comments and any additional information received 
by the Service, and such communications may lead to adoption of a final 
regulation that differs from this proposal.
    The Endangered Species Act provides for one or more public hearings 
on this proposal, if requested. Requests must be received within 45 
days of the date of publication of the proposal in the Federal 
Register. Such requests must be made in writing and be addressed to the 
Field Supervisor, Caribbean Field Office, U.S. Fish and Wildlife 
Service. P.O. Box 491, Boqueron, Puerto Rico 00622.

National Environmental Policy Act

    The Fish and Wildlife Service has determined that Environmental 
Assessment and Environmental Impact Statements, 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

Breckon, G.J., and D.A. Kolterman. 1993. Cordia bellonis Urban 
[Boraginaceae]. Final report under cooperative agreement No. 14-16-
0004-92-970 between U.S. Fish and Wildlife Service and the 
University of Puerto Rico, Mayaguez Campus. 14 pp.
Breckon, G.J., and D.A. Kolterman. 1994. Cordia bellonis Urban 
[Boraginaceae]. Final report under cooperative agreement No. 14-16-
0004-93-973 between U.S. Fish and Wildlife Service and the 
University of Puerto Rico, Mayaguez Campus. 4 pp.
Britton, N.L., and P. Wilson. 1925. Scientific survey of Porto Rico 
and the Virgin Islands. Volume VI-Part 1. Botany of Porto Rico and 
the Virgin Islands. Descriptive flora-Spermatohyta (continued). New 
York Academy of Sciences, New York. 158 pp.
Federal Highway Administration and the Puerto Rico Highway and 
Transportation Authority. 1994. Biological Assessment Relocation of 
PR-10 Utuado, Puerto Rico. Unpublished Report.
Liogier, H.A., and L.F. Martorell. 1982. Flora of Puerto Rico and 
adjacent islands: a systematic synopsis. Editorial de la Universidad 
de Puerto Rico, Rio Piedras, Puerto Rico. 342 pp.
Proctor, G. 1991. Puerto Rican plant species of concern: Status and 
recommendations. Miscellaneous Scientific Publication No.2. 
Department of Natural and Environmental Resources, San Juan, Puerto 
Rico. 59-61 p.
Puerto Rico Highway and Transportation Authority. 1995. Report to 
U.S. Fish and Wildlife Service on plant species, Puerto Rican boa 
and monitoring program of the broad-winged hawk PR-10 Highway, 
Arecibo-Utuado. Unpublished report.
Urban. 1899. Symb. Antill. 1:393.

Author

    The primary author of this proposed rule is Ms. Marelisa Rivera, 
Caribbean Field Office, U.S. Fish and Wildlife Service, P.O. Box 491, 
Boquern, Puerto Rico 00622 (809/851-7297).

List of Subjects in 50 CFR Part 17

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

Proposed Regulation Promulgation

    Accordingly, the Service hereby proposes to amend part 17, 
subchapter B of chapter I, title 50 of the Code of Federal Regulations, 
as set forth below:

PART 17--[AMENDED]

    1. The authority citation for part 17 continues to read as follows:

    Authority: 16 U.S.C. 1361-1407; 16 U.S.C. 1531-1544; 16 U.S.C. 
4201-4245; Pub. L. 99-625, 100 Stat. 3500; unless otherwise noted.

    2. Section 17.12(h) is amended by adding the following, in 
alphabetical order under FLOWERING PLANTS, to the List of Endangered 
and Threatened Plants to read as follows:


Sec. 17.12  Endangered and threatened plants.

* * * * *
    (h) * * *

                                                                                                                                                        

[[Page 50180]]
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                     Species                                                                                                                            
--------------------------------------------------      Historic range            Family name           Status     When listed    Critical     Special  
     Scientific name            Common name                                                                                       habitat       rules   
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    Flowering Plants                                                                                                                                    
                                                                                                                                                        
                        *                  *                *                *                *                *                *                       
Cordia bellonis.........  None...................  U.S.A. (PR)............  Boraginaceae...........  E             ...........           NA           NA
                                                                                                                                                        
                        *                  *                *                *                *                *                *                       
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    Dated: September 6, 1995.
John G. Rogers,
Acting Director, Fish and Wildlife Service.
[FR Doc. 95-24014 Filed 9-27-95; 8:45 am]
BILLING CODE 4310-55-P