[Federal Register Volume 60, Number 190 (Monday, October 2, 1995)]
[Proposed Rules]
[Pages 51432-51436]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-24334]



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DEPARTMENT OF THE INTERIOR
50 CFR Part 17

RIN 1018-AD52


Endangered and Threatened Wildlife and Plants; Proposed 
Threatened Status for the Guajon

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Proposed rule.

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SUMMARY: The Fish and Wildlife Service (Service) proposes to determine 
the guajon (Eleutherodactylus cooki) to be a threatened species 
pursuant to the Endangered Species Act (Act) of 1973, as amended. The 
guajon is endemic to Puerto Rico and is restricted to the Pandura 
mountain range in the southeastern part of the island. It is threatened 
in this area by agricultural, rural, and industrial development and the 
associated infrastructure. This proposal, if made final, will implement 
the Federal protection and recovery provisions afforded by the Act for 
E. cooki.
DATES: Comments from all interested parties must be received by 
December 1, 1995. Public hearing requests must be received by November 
16, 1995.


[[Page 51433]]

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, during normal business hours at this office, and at the 
Service's Southeast Regional Office, 1875 Century Boulevard, Atlanta, 
Georgia 30345.

FOR FURTHER INFORMATION CONTACT: Ms. Susan Silander at the Caribbean 
Field Office address (809/851-7297) or Mr. William C. Hunter at the 
Atlanta, Georgia, Regional Office address (404/331-3580).

SUPPLEMENTARY INFORMATION:

Background

    With over 400 described species, Eleutherodactylus is the largest 
vertebrate genus. Two major centers of species diversity occur: 
northwestern South America and the West Indies. Almost all species 
possess ``t-shaped'' terminal phalanges, probably an adaptation for 
climbing and reproductively, these frogs have direct development, 
allowing for reproduction away from water. In the West Indies, 
Eleutherodactylus species are a dominant amphibian group. No single 
species is naturally found on more than one of the four Greater 
Antilles, and most are restricted to small areas within an island 
(Hedges 1989). Seventeen species of this genus are known from Puerto 
Rico and collectively, they are commonly known as ``coquis'' (Rivero 
1978, Moreno 1991).
    The guajon (Eleutherodactylus cooki), also known commonly as 
``demon of Puerto Rico'' or ``demonio de Puerto Rico,'' is a relatively 
large frog, approximately 8.5 centimeters (3.3 inches) in length. It is 
solid brown in color, although males and some females may have a yellow 
throat. In both sexes, the frogs have large, white-rimmed eyes, giving 
the species a specter or phantom-like appearance. It is characterized 
by having large truncate discs and by a peculiar, melodious and low 
voice which is completely different from any other species of 
Eleutherodactylus in Puerto Rico (Rivero 1978). Rivero (1978) states 
that its peculiar calling and phantom-like appearance made many local 
people fearful of the species, believing that the mere sight of an 
animal would be fatal.
    The guajon, first collected in 1932, is known only from the Pandura 
range in southeastern Puerto Rico and west to Patillas/San Lorenzo 
where it lives in crevices and grottoes in and among boulders. Such 
grottoes are commonly referred to as guajonales. It is from the 
grottoes or guajonales that the frog derives its name, the guajon. The 
species is apparently limited in distribution by the rock formation 
where it occurs (Rivero 1978, Joglar 1992). Joglar (1992) documented 
population fluctuations, apparently related to precipitation and 
temperature. Numbers are lowest during the winter months, during the 
period of least rainfall and lowest temperatures. The number of egg 
clutches and juveniles was greatest during the months of October and 
September. Eggs are laid on the humid faces of boulders within the 
grottoes and the clutches of up to 59 eggs are apparently guarded by 
the males (Rivero 1978).
    During surveys conducted by Drewry (1986) and Joglar (1992), the 
guajon was found at its historical localities, all of which occur 
within the municipalities of Yabucoa and San Lorenzo. Little historical 
data are available on abundance, therefore, reductions in populations 
are difficult to document. Nevertheless, E. cooki is endemic to Puerto 
Rico, extremely restricted in geographical distribution and occurs only 
on privately-owned lands. Threats include fire, deforestation and earth 
movement for agricultural activities and rural development, road 
construction, including the construction of a major four lane highway, 
and the construction of a reservoir.

Previous Federal Action

    In the Service's notices of review for vertebrate candidates 
published in the Federal Register of December 30, 1982 (47 FR 58454), 
September 18, 1985 (50 FR 37958), January 6, 1989 (55 FR 17475) and 
November 21, 1991 (56 FR 58804), Eleutherodactylus cooki was included 
as a category 2 species. Category 2 species (now recognized as species 
of concern to the Service) are taxa for which there is information to 
indicate that listing may be appropriate, but for which there is 
insufficient data to support a listing proposal.
    During a symposium/workshop on Puerto Rican reptiles and amphibians 
held in Puerto Rico in April of 1990, Moreno (1991) believed that the 
guajon was declining and in urgent need of a status survey. Status 
surveys conducted in 1991 and 1992 indicated that the guajon is 
extremely restricted in distribution and currently faces significant 
threats (Joglar 1992). The Service recently elevated the guajon to 
candidate status and is proposing it for threatened status.

Summary of Factors Affecting the Species

    Section 4(a)(1) of the Endangered Species Act (16 U.S.C. 1531 et 
seq.) and regulations (50 CFR part 424) promulgated to implement the 
listing provisions of the Act set forth the procedures for adding 
species to the Federal lists. A species may be determined to be 
endangered or threatened due to one or more of the five factors 
described in section 4(a)(1). These factors and their application to 
the guajon (Eleutherodactylus cooki) are as follows:

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

    The guajon is only known from the municipalities of Yabucoa and San 
Lorenzo in the Pandura mountain range in the extreme southeastern 
corner of Puerto Rico. Deforestation and earth movement for 
agricultural and rural development have encroached upon known habitat 
of the species. Road construction and the associated cut and fill has 
eliminated habitat (Drewry 1986). A major four lane highway is 
currently proposed through the area, as is the construction of a major 
reservoir.

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

    Although not previously identified as a determinant factor in the 
decline of the guajon specifically, scientific collecting of related 
species of coqui in Puerto Rico has contributed to declines. In a 
survey of only seven museums in both Puerto Rico and the United States, 
numerous specimens of the web-footed coqui (E. karlschmidti) and the 
mottled coqui (E. eneidae) were located, with a total of 473 preserved 
individuals of the former and 325 of the latter species (Joglar 1992). 
Both of these related species' status are under evaluation by the 
Service because of their extreme rarity. Collection of 
Eleutherodactylus sp. for use in local art has also been documented, 
and such activities are currently being evaluated by the Commonwealth 
government for possible regulation.

C. Disease or Predation

    Disease has not been documented as a factor in the decline of this 
species. However, examination of both preserved and live specimens of 
the guajon revealed that the species is parasitized by the tick 
Ornithodoros talaje. Nevertheless, the effect of this parasite on the 
guajon has yet to be studied (Joglar 1992). Introduced species such as 
cats, rats and mongoose, active at night, 

[[Page 51434]]
may adversely affect densities of this species by feeding on the frogs 
and their eggs.

D. The Inadequacy of Existing Regulatory Mechanisms

    The guajon is not currently protected by Commonwealth regulations. 
Federal listing will provide immediate protection for the species and 
enhance its protection and possibilities for funding needed research.

E. Other Natural or Manmade Factors Affecting Its Continued Existence

    The decline in populations of amphibians has become apparent 
globally. Factors which may be responsible for the decline of 
amphibians include: habitat destruction and modification, acid rain, 
pesticide contamination, introduction of non-native predators and 
competitors, agriculture, mining and logging, increased levels of 
ultraviolet radiation, collection, and global climatic change (Wake and 
Morowitz 1991).
    Flash floods, droughts, and catastrophic storms, such as Hurricane 
Hugo which occurred in 1989, may have caused localized extirpations of 
other species of Eleutherodactylus in specific areas in Puerto Rico 
(Burrowes and Joglar 1991, Joglar 1992). Hurricane Hugo negatively 
affected the abundance of E. portoricensis, a species which is not 
abundant and is restricted in distribution (Joglar and Burrowes 1991). 
The guajon is endemic to Puerto Rico and extremely restricted in 
distribution, it is known only from the southeastern part of the 
island.
    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 
Eleutherodactylus cooki as threatened. Since the species is extremely 
restricted in distribution and specialized in habitat. Activities such 
as dam and road construction and land conversion to agriculture 
threaten to significantly reduce available habitat. While not in 
immediate danger of extinction, the guajon is likely to become an 
endangered species in the foreseeable future if present threats 
continue. The reasons for not proposing critical habitat for these 
species are discussed below in the ``Critical Habitat'' section.

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 the designation of critical habitat is not prudent for the 
guajon. 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.
    While collection has not been documented as contributing to the 
decline of the guajon specifically, large numbers of other 
Eleutherodactylus species, including several identified as species at 
risk, have been documented in scientific collections. Collection of 
Eleutherodactylus sp. has been documented for use by local artisans, 
and such collection is currently under evaluation by the Commonwealth 
government for possible regulation. In addition, due to appearance of 
the animal, Rivero (1978) stated that local people were fearful of 
them. This fear could lead to killing of guajon.
    The guajon is rare and restricted in range, and taking for 
scientific purposes and private collection would pose a serious threat 
to the species if specific site information were released. The 
publication of critical habitat maps in the Federal Register and local 
newspapers and other publicity accompanying critical habitat 
designation would likely increase the collection threat and increase 
the potential for vandalism if such designation were proposed. The 
Service believes, therefore, that the identification of critical 
habitat may increase the threat to the species. The locations of 
populations of this species have consequently been described only in 
general terms in this proposed rule. Any existing precise locality data 
would be available to appropriate Federal, State, and local government 
agencies from the Service office described in the ADDRESSES section.
    Regulations promulgated for implementing section 7 of the Act 
provide for both a jeopardy standard, based on listing alone, and for a 
destruction or adverse modification standard, in cases where critical 
habitat has been designated. The guajon occupies an extremely 
restricted geographic area in Puerto Rico and, once listed, the Service 
believes that protection of guajon habitat can be accomplished through 
the section 7 jeopardy standard, and through section 9 prohibitions 
against take.

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 results in 
conservation actions by Federal, Commonwealth, and private agencies, 
and individuals. The Act provides for possible land acquisition and 
cooperation with the Commonwealth and requires that recovery actions be 
carried out for all listed species. Such actions are initiated by the 
Service following listing. The protection required of Federal agencies 
and the prohibitions against taking and harm 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 authorize, 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 
affect a listed species or its critical habitat, the responsible 
Federal agency must enter into formal consultation with the Service.

[[Page 51435]]

    Federal agency actions that may require conference and/or 
consultation as described in the preceding paragraph include: the Army 
Corps of Engineers and/or National Resource Conservation Service 
(previously Soil Conservation Service) involvement in the construction 
of a reservoir; Farmer's Home Administration funding of water, sewer, 
and power lines as well as residential developments; and the Federal 
Highway Administration's involvement in the construction of small roads 
and a major highway through the area.
    The Act and its implementing regulations set forth a series of 
general trade prohibitions and exceptions that apply to all threatened 
wildlife. The prohibitions, codified at 50 CFR 17.21 and 17.31, in 
part, make it illegal for any person subject to the jurisdiction of the 
United States to take (includes harass, harm, pursue, hunt, shoot, 
wound, kill, trap, or collect; or to attempt any of these), import or 
export, ship in interstate commerce in the course of commercial 
activity, or sell or offer for sale in interstate or foreign commerce 
any listed species. It is also 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 
Commonwealth conservation agencies.
    Permits may be issued to carry out otherwise prohibited activities 
involving threatened wildlife species under certain circumstances. 
Regulations governing permits are at 50 CFR 17.32. Such permits are 
available for scientific purposes, to enhance the propagation or 
survival of the species, and/or for incidental take in connection with 
otherwise lawful activities. For threatened species, permits are also 
available for zoological exhibition, educational purposes, or special 
purposes consistent with the purposes of the Act. Requests for copies 
of the regulations regarding listed wildlife and inquiries about 
prohibitions and permits may be addressed to the Service's Southeast 
Regional Office, 1875 Century Boulevard, Atlanta, Georgia 30345 (404/
679-7110).
    It is the policy of the Service (59 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 guajon are located on privately-owned land. The Service 
believes that, based on the best available information, the following 
actions will not result in a violation of section 9, provided these 
activities are carried out in accordance with existing regulations and 
permit requirements:
    (1) Momentary moving of an individual guajon out of danger (e.g., 
road, path);
    (2) Possession of legally acquired guajon, under Service-approved 
permitted conditions; and
    (3) Federally approved projects that involve activities, such as, 
dam and road construction, earth movement for agricultural activities 
and rural development, or diversion or alteration of surface or ground 
water flow into or out of grottoes (e.g., due to roads, impoundments, 
discharge pipes, storm water detention basins, etc.), when such 
activity is conducted in accordance with any reasonable and prudent 
measures given by the Service in accordance with section 7 of the Act.
    Activities that the Service believes could potentially result in 
``take'' of the guajon, include, but are not limited to:
    (1) Unauthorized collecting or capture of the species, except as 
noted above to momentarily move an individual out of harm's way;
    (2) Purposeful introduction of exotic species, such as cats, rats 
and mongoose, that may adversely affect densities of this species by 
feeding on adults or eggs;
    (3) Unauthorized destruction/alteration of the species' habitat 
(e.g., rock removal, discharge of fill materials, earth movement for 
agricultural activities and rural development, or diversion or 
alteration of surface or ground water flow into or out of grottoes) 
when such activity is not conducted in accordance with section 7 of the 
Act;
    (4) Pesticide applications in violation of label restrictions; and
    (5) Discharges or dumping of toxic chemicals, silt, or other 
pollutants into areas supporting this species.
    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, 
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 the guajon;
    (2) The location of any additional populations of this species, and 
the reasons why any habitat should or should not be determined to be 
critical habitat pursuant to section 4 of the Act;
    (3) Additional information concerning the range, distribution and 
population size of this species; and
    (4) Current or planned activities in the subject areas and their 
possible impacts on this species.
    Final promulgation of the regulation on the guajon 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 one or more public hearings 
on this proposal, if requested. Requests must be filed within 45 days 
of the publication of the proposal in the Federal Register. Such 
requests must be made in writing and 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 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

Burrowes, P.A., and R.L. Joglar. 1991. A survey of the population 
status and an ecological evaluation of three Puerto Rican frogs. In 
J.A. Moreno, ed., Status y Distribucion de los Anfibios y Reptiles 
de Puerto Rico. Publ. Cien. Misc. No.1. pp. 42-46. Departamento de 
Recursos Naturales y Ambientales, San Juan, Puerto Rico.
Drewry, G.E. 1986. Golden coqui recovery survey and brief status 
evaluation of five other Puerto Rican Eleutherodactylus species. 
Trip report prepared for the Caribbean Field Office, U.S. Fish and 
Wildlife Service. 49 pp.
Hedges, S.B. 1989. Evolution and biogeography of West Indian frogs 
of the genus Eleutherodactylus: slow-evolving 

[[Page 51436]]
loci and the major groups. In Biogeography of the West Indies: 305-370.
Joglar, R.S., and P.A. Burrowes. 1991. El efecto del Huracan Hugo 
sobre una comunidad de anfibios en El Yunque, Puerto Rico y algunas 
recomendacions para la proteccion de las especies del genero 
Eleutherodactylus. In J.A. Moreno, ed., Status y Distribucion de los 
Anfibios y Reptiles de Puerto Rico. Publ. Cien. Misc. No.1. pp. 47-
52. Departamento de Recursos Naturales y Ambientales, San Juan, 
Puerto Rico.
Joglar, R.L. 1992. Status survey of four species of 
Eleutherodactylus: Final report. Report prepared for the Caribbean 
Field Office, Fish and Wildlife Service. 41 pp.
Moreno, J.A. (ed.) 1991. Status y Distribucion de los Anfibios y 
Reptiles de Puerto Rico. Publ. Cien. Misc. No. 1. Departamento de 
Recursos Naturales y Ambientales de Puerto Rico. San Juan, Puerto 
Rico 67 pp.
Rivero, J.A. 1978. Los Anfibios y Reptiles de Puerto Rico. U.P.R. 
Editorial Universitaria. San Juan, Puerto Rico 152 pp.
Wake, D.B., and H.J. Morowitz. 1991. Declining amphibian 
populations--a global phenomenon? Findings and recommendations. 
Alytes 9(2): 33-42.

Author

    The primary author of this proposed rule is Ms. Susan Silander, 
Caribbean Field Office, U.S. Fish and Wildlife Service, P.O. Box 491, 
Boqueron, 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. It is proposed to amend 17.11(h) by adding the following, in 
alphabetical order under AMPHIBIANS, to the list of Endangered and 
Threatened Wildlife to read as follows:


Sec. 17.11  Endangered and threatened wildlife.

* * * * *
    (h) * * *

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             Species                                   Vertebrate                                               
----------------------------------                     population                                               
                                    Historic range       where         Status     When      Critical    Special 
   Common name    Scientific name                    endangered or               listed     habitat      rules  
                                                       threatened                                               
----------------------------------------------------------------------------------------------------------------
                                                                                                                
*                  *                  *                  *                  *                  *                
                                                        *                                                       
Amphibians                                                                                                      
                                                                                                                
                                                                                                                
*                  *                  *                  *                  *                  *                
                                                        *                                                       
Guajon..........  Eleutherodactyl  U.S.A. (PR)....  NA.............  T          ........           NA         NA
                   us cooki.                                                                                    
*                  *                  *                  *                  *                  *                
                                                        *                                                       
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    Date: September 19, 1995.
Mollie H. Beattie,
Director, Fish and Wildlife Service.
[FR Doc. 95-24334 Filed 9-29-95; 8:45 am]
BILLING CODE 4310-55-P