[Federal Register Volume 61, Number 195 (Monday, October 7, 1996)]
[Rules and Regulations]
[Pages 52370-52384]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-25462]


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DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service

50 CFR Part 17

RIN 1018-AC01


Endangered and Threatened Wildlife and Plants; Determination of 
Endangered or Threatened Status for Four Southern Maritime Chaparral 
Plant Taxa from Coastal Southern California and Northwestern Baja 
California, Mexico

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Final rule.

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SUMMARY: The U.S. Fish and Wildlife Service (Service) determines 
endangered status pursuant to the Endangered Species Act of 1973, as 
amended (Act), for two plants--Arctostaphylos glandulosa ssp. 
crassifolia (Del Mar manzanita) and Chorizanthe orcuttiana (Orcutt's 
spineflower) throughout their historic range in southwestern California 
and northwestern Baja California, Mexico; and threatened status for two 
plants--Verbesina dissita (big-leaved crown-beard) and Baccharis 
vanessae (Encinitas baccharis) throughout their historic range in 
southwestern California and northwestern Baja California, Mexico. These 
four taxa are threatened by one or more of the following--trampling by 
farm workers or recreational activities; fuel modification; competition 
from non-native plant species; and habitat destruction due to 
residential, agricultural, commercial, and recreational development. 
Several of these plant taxa are also threatened by a risk of extinction 
from naturally occurring events due to their small population size and 
limited distribution. This rule implements the Federal protection and 
recovery provisions afforded by the Act for these four plants.

EFFECTIVE DATE: November 6, 1996.

ADDRESSES: The complete file for this rule is available for public 
inspection, by appointment, during normal business hours at the U.S. 
Fish and Wildlife Service, Carlsbad Field Office, 2730 Loker Avenue 
West, Carlsbad, California 92008.

FOR FURTHER INFORMATION CONTACT: Fred Roberts, Botanist (see ADDRESSES 
section) (telephone: 619/431-9440).

SUPPLEMENTARY INFORMATION:

Background

    Southern maritime chaparral is a low, fairly open chaparral 
typically dominated by Ceanothus verrucosus (wart-stemmed ceanothus), 
Xylococcus bicolor (mission manzanita), Adenostoma fasciculatum var. 
obtusifolium (chamise), Quercus dumosa (Nuttall's scrub oak), 
Cneoridium dumosum (bush rue), Rhamnus crocea (red berry), Yucca 
schidigera (Mojave yucca), and occasionally Dendromecon rigida (bush 
poppy)(Holland 1986; Todd Kehler-Wolf, Plant Ecologist, California 
Department of Fish and Game (CDFG), pers. comm., 1993; Dan Kelly and 
Patricia Gordon-Reedy, biologists, OGDEN, pers. comm., 1993). Southern 
maritime chaparral is a plant association that occurs only in coastal 
southern California along the immediate coast of San Diego and Orange 
counties and northwestern Baja California, Mexico. The distribution of 
southern maritime chaparral in Orange County is disjunct, and the 
species composition is slightly different from that found in San Diego 
County and Mexico (Gray and Bramlet 1992).
    Southern maritime chaparral is considered to be a unique and

[[Page 52371]]

threatened plant community. It has been estimated that about 120 
hectares (ha) (300 acres (ac)) of southern maritime chaparral occurred 
historically in Orange County (U.S. Fish and Wildlife Service (USFWS), 
unpublished data), while about 8,400 ha (21,000 ac) of southern 
maritime chaparral occurred historically in San Diego County (Oberbauer 
and Vanderwier 1991). Currently, there are an estimated 60 ha (150 ac) 
of southern maritime chaparral in Orange County (Todd Kehler-Wolf, 
pers. comm., 1993) and between 600 and 1,480 ha (1,500 and 3,700 ac) in 
San Diego County (Oberbauer and Vanderwier 1991; OGDEN 1993; Dave 
Hogan, Southwest Center for Biological Diversity, in litt., 1993). This 
represents an 82 to 93 percent decline in habitat in southern 
California, largely due to agricultural conversion and urbanization. 
Much of the remaining 10 to 20 percent of the United States portion of 
southern maritime chaparral is located on Carmel Mountain, Torrey Pines 
State Park, and in the cities of Carlsbad and Encinitas in San Diego 
County. The distribution of southern maritime chaparral and related 
associations has also declined significantly in Baja California, 
Mexico, for many of the same reasons.
    One of the four plant taxa to be listed by this final rule, 
Chorizanthe orcuttiana, is primarily restricted to weathered sandstone 
bluffs in association with or in microhabitats within southern maritime 
chaparral. This species is endemic to south-central and southern 
coastal San Diego County, California. A second taxon, Arctostaphylos 
glandulosa ssp. crassifolia, is also primarily associated with southern 
maritime chaparral in San Diego County, California. It also occurs in 
disjunct populations in northwestern Baja California, Mexico, at least 
as far south as Mesa el Descanseo, 40 kilometers (km) (25 miles (mi)) 
north of Ensenada.
    The remaining two taxa, Verbesina dissita and Baccharis vanessae, 
are frequently associated with southern maritime chaparral but also 
extend into other plant communities. Verbesina dissita is restricted to 
rugged coastal canyons in association with San Onofre breccia-derived 
soils in the southern maritime chaparral of southern Orange County, 
California. This taxon also occurs in limited numbers in Venturan-
Diegan transitional coastal sage scrub (Gray and Bramlet 1992), Diegan 
coastal sage scrub, and southern mixed chaparral (Holland 1986). 
Verbesina dissita occurs disjunctly in similar vegetation associations 
from Punta Descanso south to San Telmo in northwestern Baja California, 
Mexico. Baccharis vanessae occurs in southern maritime chaparral in the 
vicinity of Encinitas, central San Diego County, California, and 
extends inland to Mount Woodson and Poway where it is associated with 
dense southern mixed chaparral. One population of this plant occurs in 
the Santa Margarita Mountains of northern San Diego County. Two of the 
four taxa are found below 250 meters (m) (820 feet (ft)) in elevation 
in the United States. Arctostaphylos glandulosa ssp. crassifolia 
reaches 730 m (2,400 ft) elevation in Mexico. Baccharis vanessae is 
known to occur at 880 m (2,890 ft) in elevation on Mount Woodson.
    While three of the four plant taxa are largely restricted to the 
United States, 85 percent of the known populations of Verbesina dissita 
are known from northwestern Baja California, Mexico. Although the 
status of this species and its habitat in Mexico is not well 
documented, over 20 percent of the populations occuring in Mexico have 
been extirpated. Agricultural conversion, resort and residential 
development, and wide fuel breaks and slash and burn practices have 
already affected and continue to contribute to the decline of Verbesina 
dissita in Mexico (CDFG 1990, Oberbauer 1992).
    The natural plant communities of coastal Orange and San Diego 
Counties have undergone significant changes resulting from both human-
caused activities and natural events. The rapid urbanization of 
southern Orange County and south-central San Diego County has already 
eliminated a significant portion of the southern maritime chaparral and 
the four plant taxa considered herein. Fire also plays an important 
role in determining southern California plant community distribution 
and composition. The advent of widespread urbanization and the 
disruption in natural fire cycles potentially threatens the remaining 
southern maritime chaparral. Populations of these four taxa have been 
subjected to a considerable degree of fragmentation.

Discussion of the Four Taxa

    Arctostaphylos glandulosa ssp. crassifolia (Del Mar manzanita), a 
member of the heath family (Ericaceae), is one of six recognized 
subspecies occurring in California and northwest Baja California, 
Mexico (Wells 1987, 1993). The subspecies is an erect shrub, generally 
1 to 1.2 m (3.3 to 4 ft) tall, but occasionally higher when 
introgressed (influenced by other subspecies).
    This taxon is distinguished from other subspecies of Arctostaphylos 
glandulosa by its shorter stature (other subspecies are up to 2.5 m 
(8.2 ft) tall), and by its dark gray-green leaves that are glabrate 
above and tomentulose beneath. The branchlets and leaf-like bracts are 
non-glandular and tomentulose with scattered long hairs or bristles 
(Wells 1993). Generally, A. glandulosa (Eastwood manzanita) is a 
relatively open, smooth, dark red-barked shrub characterized by a basal 
burl and scarcely leaf-like bracts that are shorter than the hairy 
flower-stalks. Four of six subspecies of A. glandulosa lack non-
glandular, tomentulose hairs and scattered white bristles on the 
branchlets, bracts and leaves. Of the remaining two taxa, A. g. ssp. 
mollis of the western Transverse Ranges has more uniformly distributed, 
long, white bristles and bright green, smooth and shiny leaves, while 
A. g. ssp. glaucomollis of the San Gabriel and San Bernardino Mountains 
lacks leaf-like bracts (Wells 1993).
    Arctostaphylos glandulosa ssp. crassifolia was first described by 
Willis Jepson (1922) based on a specimen he collected in Del Mar, 
California. In 1925, Jepson placed Del Mar manzanita under the name 
Arctostaphylos tomentosa var. crassifolia (Knight 1981). This name was 
used by Howard McMinn (1939), who stated that Del Mar manzanita ``seems 
very closely related to A. glandulosa var. cushingiana but the more 
truncate leaf-bases, the usually more tomentulose lower leaf-surfaces, 
and distribution seem sufficient to maintain it as a variety of A. 
tomentosa.'' J.E. Adams, in his 1940 treatment of the genus 
Arctostaphylos, transferred var. crassifolia to A. glandulosa as in 
Jepson's original treatment (Knight 1981).
    Philip Wells (1968) stated that ``other morphological variants of 
the A. glandulosa complex have largely allopatric (do not overlap) 
geographic distributions and are recognized as subspecies.'' 
Accordingly, Wells applied the name A. glandulosa ssp. crassifolia to 
the Del Mar manzanita. Subsequent taxonomic review (Munz 1959, 1974) 
upheld this treatment. Walter Knight (1981) reviewed the morphology and 
summarized the taxonomic history of A. g. ssp. crassifolia. While the 
majority of Knight's discussion in that article supported the validity 
of A. g. ssp. crassifolia, Knight concluded that this taxon should not 
be recognized. He stated that A. g. ssp. crassifolia was a product of 
hybridization between A. glandulosa and other manzanita species in the 
area. However, Knight's conclusions were not widely accepted by 
botanists in San Diego County (Beauchamp 1986; Thomas Oberbauer, 
Planner, County of San Diego, pers.

[[Page 52372]]

comms., 1993, 1994). Knight did not offer support, nor discuss 
potential parentage for considering A. g. ssp. crassifolia as a hybrid 
entity. Arctostaphylos glandulosa ssp. crassifolia is allopatric with 
other manzanita taxa, except in Mexico, where the range is partly 
sympatric (overlapping) with A. g. ssp. zacaensis (Wells 1987). 
Additionally, the morphological characters of A. g. ssp. crassifolia do 
not appear to be intermediate with any other species within the 
vicinity of its range (McMinn 1939, Munz 1974, Wells 1993, Roberts 
1994).
    Both Knight and Wells were asked to examine populations of 
manzanita along coastal San Diego County in March 1986. From these 
field observations, Knight revised his position and agreed with the 
classical treatment, concluding that Arctostaphylos glandulosa ssp. 
crassifolia was distinct (T. Oberbauer, pers. comms., 1993, 1994; Jim 
Bartel, USFWS, pers. comm., 1994). Wells reaffirmed the distinctness of 
A. g. ssp. crassifolia, stating ``(A. g.) ssp. crassifolia is one of 
the more consistent and well-defined taxa within the variable A. 
glandulosa complex, and (A. g. ssp.) crassifolia has a discrete 
distribution, allopatric from other taxa'' (Wells 1987, Sweetwater 
Environmental Biologists (SEB) 1993b).
    Arctostaphylos glandulosa ssp. crassifolia is restricted to 
sandstone terraces and bluffs from Carlsbad south to Torrey Pines State 
Park, extending inland to Rancho Santa Fe and Del Mar Mesa in San Diego 
County, California. An additional population has been reported just 
south of the San Dieguito River southwest of Lake Hodges. This species 
has been reported from five localities in northwestern Baja California, 
Mexico, from just east of Tijuana along the United States border, to 
Cerro el Coronel and Mesa Descanseo 40 km (25 mi) south of the United 
States border. These populations may no longer be extant due to 
considerable urban and agricultural development in the Tijuana vicinity 
(Roberts 1992). The most recent collection in the San Diego Museum of 
Natural History was made by Reid Moran in 1982.
    About 1982, approximately 16,600 to 17,600 individuals of 
Arctostaphylos glandulosa ssp. crassifolia were known to be distributed 
over about 26 population centers (Roberts 1992, SEB 1993b, OGDEN 
1995a). A significant number of these populations have been severely 
impacted since then. For example, in 1987, one population of nearly 500 
individuals near San Dieguito Creek and the surrounding southern 
maritime chaparral habitat was cleared and converted to agriculture. 
Cultivation at this site was active for one season and has not been 
continued (T. Oberbauer, pers. comm., 1992). Currently, about 9,400 to 
10,300 individuals, scattered roughly throughout the historic 
distribution of the species in San Diego County, are known to be extant 
(Roberts 1993, SEB 1993b, OGDEN 1995a). About 75 percent of all 
remaining individuals are located within six concentrations. The 
majority of the 26 populations are found on private land, four occur in 
State, county or local parks, and none are known from Federal lands. 
The number of individuals in Baja California, Mexico, is not known but 
is likely to be smaller than in the United States, based on the limited 
availability of habitat.
    Four populations of Arctostaphylos glandulosa totaling 
approximately 3,000 individuals in the vicinity of Miramar Reservoir 
have been attributed to A. g. ssp. crassifolia, but Wells (pers. comm., 
1992) maintains that these plants are intermediate with other 
subspecies of A. glandulosa and can not be definitely placed. Later 
inclusion of these populations in A. g. ssp. crassifolia would not 
significantly alter the findings of this rule. Nearly 50 percent of the 
individuals known from the vicinity of Miramar Reservoir in 1982 were 
eliminated by the Scripps Ranch development between 1989 and 1992.
    Baccharis vanessae (Encinitas baccharis), a member of the sunflower 
family (Asteraceae), is a dioecious broom-like shrub, 0.5 to 1.3 m (1.6 
to 4.3 ft) tall. It was discovered by Mitchel Beauchamp in October 1976 
in southern maritime chaparral on Eocene sandstones along the north 
side of Encinitas Boulevard in Encinitas. The species was later 
described by Beauchamp (1980). Baccharis vanessae is distinguished from 
other members of the genus by its filiform leaves and delicate 
phyllaries which are reflexed at maturity (Beauchamp 1980, Munz 1974).
    As currently understood, the historical distribution of this 
species included 19 natural populations scattered from Encinitas east 
through the Del Dios highlands and Lake Hodges area to Mount Woodson 
and south to Poway and Carmel Mountain in San Diego County, California. 
Fourteen of these populations are still extant and contain 
approximately 2,000 individuals in total (CDFG 1992). Four of these 
populations, however, contain fewer than six individuals each. An 
additional disjunct individual was discovered on the western slopes of 
Carmel Mountain in 1993 (D. Hogan, in litt., 1993). This location 
harbors the southernmost known population. A single transplanted 
population of 34 individuals was established in San Dieguito Park, but 
this population has not persisted (Hall 1987). The majority of the 
remaining populations are on private lands.
    Chorizanthe orcuttiana (Orcutt's spineflower) was first described 
by Charles Parry in 1884 based on a specimen collected by Charles 
Orcutt at Point Loma, San Diego County, in the same year (Parry 1884). 
Chorizanthe orcuttiana is a low, yellow-flowered annual of the 
buckwheat family (Polygonaceae) restricted to sandy soils. It is 
distinguished from other members of the genus by its prostrate form, 
campanulate three-toothed involucre and involucral awns that are hooked 
near the tip (Reveal 1989).
    Historically, Chorizanthe orcuttiana is known from 10 separate 
localities in San Diego County from Point Loma near San Diego 
(including the U.S. Naval Reservation), Del Mar, Kearney Mesa and 
Encinitas (CDFG 1992). Only two populations have been seen in recent 
years. Allen reported 50 to 100 individuals at Torrey Pines State Park 
in 1987 (CDFG 1992). However, this population has not been relocated in 
the last several years, possibly due to changing plant species 
composition and density as result of a 1984 burn. The species was 
thought to be extinct until a new population was discovered in 1991 at 
Oak Crest Park in Encinitas (D. Hogan, in litt., 1991). This population 
numbered fewer than 40 individuals in 1993 and fewer than 10 
individuals in 1994, and it is distributed over a relatively small area 
(about 4 square m (43 square ft)) (unpublished USFWS data). The number 
of individuals varies widely from year to year because the success of 
germination is highly dependent on factors such as rainfall, which 
often differ significantly from one year to the next in southern 
California.
    Verbesina dissita (big-leaved crown-beard) was first described by 
Asa Gray (1885) based on a collection made by Charles Orcutt at 
Ensenada, Baja California, Mexico, in September 1884. The taxon 
apparently was first collected in the United States at Arch Beach in 
South Laguna, Orange County, in 1903 by Mrs. M.F. Bradshaw (Hall 1907).
    Verbesina dissita, a member of the sunflower family (Asteraceae), 
is a low, semi-woody perennial shrub with bright yellow flowers. This 
species grows from 0.5 to 1.0 m (1.6 to 3.3 ft) tall and has 
distinctive scabrid leaves. Verbesina dissita is distinguished from 
other members of the genus in California and Baja California, Mexico, 
by its naked

[[Page 52373]]

achenes and broad involucre (Munz 1974).
    Verbesina dissita is found on rugged hillsides in dense maritime 
chaparral from Laguna Beach in Orange County south to the San Telmo 
area east of Cabo Colonet in Baja California, Mexico. In California it 
is known from two population centers less than 3.2 km (2 mi) apart. 
Because of the low growth habit and preference for understory 
locations, the population size of this taxon is difficult to estimate. 
The United States populations have been estimated to contain several 
thousand plants (CDFG 1992, Marsh 1992). Historically, this taxon has 
been recorded from 23 separate locations in Mexico. Of the Mexican 
localities, over 20 percent, all north of Punta Santo Tomas, have been 
eliminated. Nearly all known populations are on private land.

Previous Federal Action

    Action by the Federal government on two of the four plant taxa 
contained herein began pursuant to section 12 of the Endangered Species 
Act of 1973 (Act), as amended (16 U.S.C. 153 et seq.). Section 12 
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, and included Arctostaphylos 
glandulosa ssp. crassifolia and Chorizanthe orcuttiana as endangered. 
The Service published a notice in the July 1, 1975, Federal Register 
(40 FR 27823) of its acceptance of the report of the Smithsonian 
Institution as a petition within the context of section 4(c)(2) 
(petition provisions are now found in section 4(b)(3) of the Act) and 
its intention thereby to review the status of the plant taxa named 
therein. On June 16, 1976, the Service published a proposal in the 
Federal Register (42 FR 24523) to determine approximately 1,700 
vascular plants to be endangered species pursuant to section 4 of the 
Act. Chorizanthe orcuttiana and Arctostaphylos glandulosa ssp. 
crassifolia were included in the June 16, 1976, Federal Register 
notice.
    General comments received in response to the 1976 proposal were 
summarized in an April 26, 1978, Federal Register notice (43 FR 17909). 
The Endangered Species Act Amendments of 1978 required that all 
proposals already over two years old be withdrawn. A 1-year grace 
period was given to those proposals already more than two 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 8, 1976, 
proposal that had not been made final, along with four other proposals 
that had expired.
    The Service published an updated notice of review of plants on 
December 15, 1980 (45 FR 82480). This notice included Baccharis 
vanessae and Chorizanthe orcuttiana as category 1 taxa. Category 1 taxa 
are those taxa for which substantial information on biological 
vulnerability and threats are available to support preparation of 
listing proposals. On November 28, 1983, the Service published in the 
Federal Register a supplement to the Notice of Review (48 FR 53840), in 
which B. vanessae and C. orcuttiana were reclassified from category 1 
to category 2. Category 2 candidates were taxa for which data in the 
Service's possession indicated listing was possibly appropriate but for 
which substantial information on biological vulnerability and threats 
was not known or on file to support the preparation of proposed rules. 
The designation of category 2 species was not included in the latest 
notice of review (February 28, 1996; 61 FR 7596). Arctostaphylos 
glandulosa ssp. crassifolia was not included in either the 1980 review 
list or the 1983 supplement.
    The plant notice was again revised on September 27, 1985 (50 FR 
39526), and Arctostaphylos glandulosa ssp. crassifolia was listed as a 
category 3B taxon. Category 3B taxa were those taxa that, based upon 
current taxonomic understanding, did not represent distinct taxa under 
the Act's definition of species (the designation of category 3B has 
also been discontinued). This change reflected the questionable 
validity of the taxon as presented by Knight (1981). The taxonomy of 
Arctostaphylos glandulosa ssp. crassifolia was subsequently 
reevaluated, and the plant was included as a category 2 taxon in the 
February 21, 1990, Plant Notice of Review (55 FR 6184), based on the 
work of Wells (1987). In this same notice, Baccharis vanessae and 
Chorizanthe orcuttiana were reevaluated and included as category 1 
species based on information contained in status reports prepared in 
conjunction with State listing as endangered. The 1990 review included 
C. orcuttiana as a category 1* candidate, indicating that this species 
was possibly extinct. Based on additional information on threats and 
vulnerability, the Service elevated A. g. ssp. crassifolia and C. 
orcuttiana to category 1 and added Verbesina dissita as a category 1 
candidate in the September 30, 1993, Notice of Review (58 FR 51144).
    Section 4(b)(3)(B) of the Act requires the Secretary to make 
certain findings on 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 Arctostaphylos 
glandulosa ssp. crassifolia and Chorizanthe orcuttiana because the 1975 
Smithsonian report had been 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 pursuant 
to section 4(b)(3)(B)(iii) of the Act. Notification of this finding was 
published in the Federal Register on January 20, 1984 (49 FR 2485). 
Such a finding requires the petition to be recycled, pursuant to 
section 4(b)(3)(C)(i) of the Act. The finding was reviewed in October 
of 1984, 1985, 1987, 1988, 1989, 1990, 1991, and 1992. Publication of 
the proposed rule constituted the warranted finding for these taxa.
    On December 14, 1990, the Service received a petition dated 
December 5, 1990, from Mr. David Hogan of the San Diego Biodiversity 
Project, to list Baccharis vanessae as an endangered species. The 
petition also requested the designation of critical habitat. The 
Service evaluated the petitioner's requested action and published a 90-
day finding on August 30, 1991 (56 FR 42968), stating that substantial 
information had been presented that the requested actions concerning 
Baccharis vanessae may be warranted.
    A proposed rule to list Arctostaphylos glandulosa ssp. crassifolia, 
Baccharis vanessae, and Chorizanthe orcuttiana as endangered and 
Verbesina dissita as threatened was published in the Federal Register 
on October 1, 1993 (58 FR 51302). That proposed rule also included 
Dudleya blochmaniae ssp. brevifolia (short-leaved dudleya) to be listed 
as endangered and Corethrogyne filaginifolia var. linifolia (Del Mar 
sand-aster) to be listed as a threatened taxon. The proposals to list 
those two taxa are withdrawn and addressed in a document published 
concurrently in the proposed rule section of this issue of the Federal 
Register.
    The processing of this final rule follows the Service's listing 
priority guidance published in the Federal Register on May 16, 1996 (61 
FR 24722). The guidance clarifies the order in which the Service will 
process rulemakings following two related events: 1) the lifting, on 
April 26, 1996, of the moratorium on final listings imposed on April 
10, 1995 (Public Law

[[Page 52374]]

104-6), and 2) the restoration of significant funding for listing 
through passage of the omnibus budget reconciliation law on April 26, 
1996, following severe funding constraints imposed by a number of 
continuing resolutions between November 1995 and April 1996. The 
guidance calls for prompt processing of final rules containing species 
facing threats of high magnitude. All four taxa in this rule face high 
magnitude threats.

Summary of Comments and Recommendations

    In the October 1, 1993, proposed rule (58 FR 51302) and associated 
notifications, all interested parties were requested to submit factual 
reports or information that might contribute to the development of a 
final rule. A 90-day comment period closed on January 1, 1994. 
Appropriate State agencies, county governments, Federal agencies, and 
other interested parties were contacted and requested to comment. A 
letter of notification and a copy of the proposed rule were also sent 
to the government of Mexico. Public notices announcing the publication 
of the proposed rule were published in the Press-Enterprise in 
Riverside County on October 12, 1993, and the San Diego Union Tribune 
in San Diego County and the Orange County Register on October 13, 1993. 
No request for a public hearing was received.
    A total of seven written comments were received. Two commenters 
supported the listing of these taxa. Two commenters neither supported 
nor opposed the proposed listing. Three commenters opposed the proposed 
listing. Information from a number of these comments has been 
incorporated into the final rule. Eleven relevant issues were raised in 
these comments and the Service's response to each is as follows:
    Issue 1: One commenter stated that the estimate for remaining 
southern maritime chaparral was too high and suggested that the 
definition of southern maritime chaparral adopted by the Service, based 
on Holland (1986), required modification.
    Service Response:  A range of estimates for remaining southern 
maritime chaparral has been incorporated into the final rule. While the 
exact amount of remaining southern maritime chaparral is not agreed 
upon, the Service considers this plant association to be sensitive and 
rare. The Service has coordinated with the CDFG, knowledgeable 
biologists, and other parties in determining an appropriate definition 
for southern maritime chaparral (Jim Dice, CDFG, T. Keeler-Wolf, D. 
Kelly and P. Gordon-Reedy, pers. comms., 1993).
    Issue 2: One commenter argued that Arctostaphylos glandulosa ssp. 
crassifolia does not warrant protection under the Act because the 
Service has failed to demonstrate that it is a distinct taxon. The 
commenter claimed that there was no consensus within the scientific 
community regarding this taxon. The commenter stated that the Service 
did not clearly demonstrate that Knight's treatment (Knight 1981) 
should be rejected over Wells (1987, 1993). The commenter questioned 
the use of morphological variation in determining subspecific 
classification. Additionally, the commenter claimed that it is unclear 
whether the Scripps Ranch population of Arctostaphylos glandulosa is 
representative of this taxon.
    Service Response: A discussion regarding the taxonomic history of 
this taxon is included under the ``Discussion of the Four Taxa'' 
section of this rule. The discussion in the proposed rule has been 
expanded to increase clarity and address concerns included within this 
comment. In determining the taxonomic status of any taxon, the Service 
utilizes the best available information. Nearly all taxonomic 
treatments published since the original description of Arctostaphylos 
glandulosa ssp. crassifolia in 1922 recognize this taxon as distinct. 
The two most recent treatments (Wells 1987, 1993) are the accepted, 
peer reviewed treatments for this genus. This taxon is also recognized 
as distinct in local floras (Beauchamp 1986) and other reports 
regarding the status of the taxon (SEB 1993b).
    The Service does not rely on Knight (1981) because this treatment 
does not represent the best available information. As discussed under 
the ``Background'' section of this rule, Knight did not substantiate 
his claim that Arctostaphylos glandulosa ssp. crassifolia was of hybrid 
origin between A. glandulosa and other unidentified species of 
Arctostaphylos. Furthermore, Knight reversed his opinion in 1986 and 
accepted A. g. ssp. crassifolia as valid (T. Oberbauer, pers. comm., 
1993; J. Bartel, pers. comm., 1994). Wells (1968, 1993) published in 
peer-reviewed publications while Knight (1981) did not. Both Wells and 
Knight applied morphological variation in determining the status of A. 
g. ssp. crassifolia. While the Service acknowledges that other methods 
(i.e., chemotaxonomy and genetic analysis) may be used as supplements 
to morphological variation as available tools for taxonomic definition, 
morphological variation has historically been the most widely accepted 
basis for taxonomic distinction for all biological organisms.
    Issue 3: One commenter claimed that historic losses of 
Arctostaphylos glandulosa ssp. crassifolia were the result of taxonomic 
confusion because of ``complete lack of consensus within the scientific 
community.'' The commenter noted the taxon has only recently been 
considered a distinct subspecies. The commenter also noted that the 
California Native Plant Society rejected this taxon in their 1988 
Inventory (Smith and Berg 1988) and that the Service determined in the 
September 27, 1985, Notice of Review (50 FR 39528) that A. g. ssp. 
crassifolia did not represent a distinct taxon. The commenter also 
asserted that Federal recognition of this taxon has been lacking since 
the 1985 notice.
    Service Response: As discussed under the ``Background'' section, 
this subspecies has been recognized as distinct for nearly 70 years. 
This taxon was first described as a variety of A. glandulosa in 1922, 
and has been widely recognized in taxonomic treatments since then 
(McMinn 1939; Abrams 1951; Munz 1959, 1974; Wells 1968, 1987, 1993; 
Beauchamp 1986). In 1985, the Service rejected this taxon based on the 
most recent taxonomic treatment at that time. However, since that time, 
floristic and monographic treatments by Beauchamp (1986) and Wells 
(1987) recognized A. g. ssp. crassifolia as a distinct taxon. The 
latter treatment detailed the taxonomic argument for retention of the 
subspecies. The Service, following the criteria of the best available 
information, reinstated the taxon to category 2 status in 1990. The 
California Native Plant Society currently recognizes A. g. ssp. 
crassifolia as a list 1B taxon (Skinner and Pavlik 1994). Plants 
included on list 1B are considered rare and endangered in the State of 
California and are eligible for State listing under California's Native 
Plant Protection Act (chapter 10 section 1901) or the State Endangered 
Species Act (Skinner and Pavlik 1994).
    As discussed in this rule under ``Previous Federal Action,'' the 
commenter is incorrect in asserting that the Service has not identified 
this taxon as a candidate for protection under the Act since 1985. It 
was published as a category 2 candidate species in the February 21, 
1990, Plant Notice of Review (55 FR 6184) and as a category 1 candidate 
in 1993. During the period between 1985 and 1990, Arctostaphylos 
glandulosa ssp. crassifolia was widely recognized in environmental 
documentation (Beauchamp 1986; Nelson 1988; Pacific Southwest 
Biological Services 1990; Stephen Lacy,

[[Page 52375]]

Biological Resource Manager, ERCE, in litt., 1991; T. Oberbauer, pers. 
comm., 1993). Based on the best available scientific and commercial 
information, the Service finds A. g. ssp. crassifolia to be a taxon 
eligible for listing under the Act.
    Issue 4: Two commenters claimed that these taxa did not warrant 
listing as endangered or threatened because the majority of their 
populations are protected from development. One commenter dealt mainly 
with a species now being withdrawn from consideration for listing. 
Another commenter claimed that the report entitled ``Description, 
Status, Distribution, and Conservation of Del Mar Manzanita 
(Arctostaphylos glandulosa ssp. crassifolia)'' by Sweetwater 
Environmental Biologists (SEB 1993b), rebuts the Service's finding that 
listing of Del Mar manzanita is warranted. Based on this report, the 
commenters stated that the majority of these individuals (76 percent) 
occur within 7 of the 22 populations. Of these 7 major populations 
(each containing over 500 individuals), the commenters claimed that 82 
percent will be preserved, which accounts for 70 percent of the entire 
taxon.
    Service Response: Although these commenters evidently include 
Baccharis vanessae, Chorizanthe orcuttiana, and Verbesina dissita 
within the context of this comment, no specific discussion was included 
regarding these taxa.
    The Service has considered the findings of the SEB report (1993b) 
in determining the status of Arctostaphylos glandulosa ssp. 
crassifolia. SEB reported that there were about 17,000 individuals of 
Del Mar manzanita distributed over 302 subpopulations within 24 
populations in San Diego County from Oceanside south to La Jolla, and 
inland to Scripps Ranch in the United States. SEB described the range 
of this taxon as extending along the immediate coast of Baja 
California, Mexico, south to Cabo Colonet about 200 km (124 mi) south 
of the United States border.
    Available data (Reid Moran, California Academy of Sciences, Philip 
Wells, T. Oberbauer, pers. comms., 1992; and herbarium collections at 
the San Diego Natural History Museum) indicate that the distribution of 
this taxon in Mexico is limited. The Service has not been presented 
with any evidence that Arctostaphylos glandulosa ssp. crassifolia 
occurs farther south than Mesa Descanseo 40 km (25 mi) south of the 
international border.
    According to SEB (1993b), 22 of the 24 United States populations, 
137 (45 percent) of the subpopulations and about 7,100 to 9,700 
individuals (42 to 58 percent) of Arctostaphylos glandulosa ssp. 
crassifolia are still extant. SEB (1993b) further states that of the 
remaining individuals of this taxon, about 82 percent are proposed for 
conservation, which includes about 35 percent on public lands and 48 
percent on private lands.
     SEB (1993b) identify seven major populations that contain about 
three-fourths of all San Diego County Arctostaphylos glandulosa ssp. 
crassifolia. The Service concurs with the assessment of six of these 
populations and identifies the seventh population identified in SEB 
(1993b) as moderately large. Service staff assessed this population at 
fewer than 500 individuals in December 1993. The Service further 
considers that both the size and the configuration of these populations 
are important to the long-term viability of A. g. ssp. crassifolia. 
Currently all seven of the populations identified as large in SEB 
(1993b) are situated in natural blocks of vegetation greater than 40 ha 
(100 ac) in size.
    The number of individuals in the SEB (1993b) report is not 
significantly different from, and generally conforms with, estimates 
used by the Service in preparation of the proposed rule. However, SEB 
(1993b) significantly overestimates the preserved population of 
Arctostaphylos glandulosa ssp. crassifolia. The remarks and data 
summary on Table 1 of the report are inconsistent--the data summary 
indicates that about 18 percent of this taxon is threatened by 
development, while the remarks section indicates that over 30 percent 
of the A. g. ssp. crassifolia is currently threatened by development. 
Although SEB (1993b) acknowledges that one of the major populations 
located in the city of Carlsbad, California, consists of nearly 2,000 
individuals, only about 750 of these are accounted for in Table 1. The 
remaining 1,200 individuals are assumed to have been ``graded.'' 
However, these individuals are still extant and are threatened by the 
implementation of a large scale development project. The Service 
considers the loss of most of this population, which represents a 
reduction of 10 to 15 percent of the United States populations of A. g. 
ssp. crassifolia, to be a significant impact on this taxon. Nor is 
public open space necessarily equivalent to protection, as indicated in 
the SEB report. This is exemplified by clearing and mulching of 
southern maritime chaparral east of Palomar Airport (Ken Cory, USFWS, 
pers. comm., 1996) in an area identified as a public open space in 
Table 1 of the SEB report.
    Estimates for preservation in SEB (1993b) do not consider the 
configuration of remaining occupied open space or edge effects 
resulting from existing and proposed development. The majority of the 
existing Arctostaphylos glandulosa ssp. crassifolia populations are 
relics of larger historic populations. Nearly 50 percent of the 
remaining populations, comprising about 10 to 14 percent of all 
individuals of A. g. ssp. crassifolia, are in open space parcels that 
are smaller than 20 ha (50 ac). While all populations of A. g. ssp. 
crassifolia are important, the majority of these small, isolated, and 
poorly configured populations are entirely within 60 m (200 ft) of, and 
are often surrounded by, development. These population configurations 
likely will not contribute significantly to the long-term preservation 
of the taxon. All are subject to edge effects (i.e., invasion of exotic 
plants, disturbances by local residents) and may be threatened by fuel 
modification activities (i.e., fire breaks, discing, reduction through 
thinning). The effect of isolation and habitat size reduction also 
retards natural fire and successional cycles within the habitat of A. 
g. ssp. crassifolia (Roberts 1993).
    Of the larger and more significant populations of Arctostaphylos 
glandulosa ssp. crassifolia, only one population is protected and 
managed for long-term preservation (Torrey Pines State Park north). 
However, this population is located within a 80 ha (200 ac) parcel that 
is completely surrounded by development (Roberts 1993). Another 
population (Crest View Canyon) is under public management; however, 
about 50 percent of this population is located within 60 m (200 ft) of 
development and is subject to edge effects (Roberts 1993). While 
another population (upper end of Agua Hedionda) is also under public 
management, it is subject to incremental clearing impacts as a result 
of adjacent airport operations, road-widening activities, and clearing 
related to mulching and agriculture (Roberts 1994; K. Cory, pers. 
comm., 1996). This population is also bisected by numerous footpaths. 
At least 15 percent of this population is situated within 60 m (200 ft) 
of development (Roberts 1993).
    Of the remaining four major populations, all are threatened in part 
by development and will be further fragmented or isolated when projects 
are completed. While the majority of one of these populations (Green 
Valley,

[[Page 52376]]

Encinitas and Carlsbad) is proposed for conservation, three others, all 
located within the City of Carlsbad, will be significantly reduced as a 
result of proposed development. Two of these populations currently 
contain nearly half of all individuals (about 3,000). After mitigation 
is implemented for proposed development projects, these populations 
will be reduced by about 50 percent and will be scattered over four 
parcels of open space containing fewer than 20 ha (50 ac). A 20 ha (50 
ac) parcel is not likely to insure long-term conservation of 
Arctostaphylos glandulosa ssp. crassifolia. Additionally, the majority 
of the surviving individuals will be situated within 60 m (200 ft) of 
development and will likely be adversely affected by edge effects 
(Roberts 1993, City of Carlsbad and Fieldstone/La Costa Associates 
1994, OGDEN 1995a). Therefore the Service finds that the claim that 82 
percent of this taxon is proposed for conservation and preservation is 
not supported by available data. The best available data indicate that 
while about 80 percent of the A. glandulosa ssp. crassifolia 
populations are within dedicated open space, parks, or preserved areas 
(about 30 percent of the total San Diego County populations are within 
the Multiple Species Conservation Program (MSCP) preserve area), only 
about 55 percent of the total populations are preserved when edge 
effects and configuration of preserved areas are considered.
    Issue 5: Two commenters stated that these taxa do not warrant 
listing because existing regulatory mechanisms provided by the 
California Environmental Quality Act (CEQA), County and City of San 
Diego Resource Protection Ordinances (RPO's), and multispecies programs 
including the State Natural Communities Conservation Plan (NCCP), and 
local MSCP, Multiple Habitat Conservation Plan (MHCP), and the Carlsbad 
Habitat Management Plan (HMP) provide adequate protection.
    Service Response: Although the County and City of San Diego adopted 
RPO's in 1991, many of the populations of these four taxa occur outside 
the jurisdiction of these ordinances. For example, none of the major 
populations of Arctostaphylos glandulosa ssp. crassifolia are within 
the City of San Diego or on lands under County jurisdiction. Currently, 
the Service is aware of 10 development projects that have recently been 
approved or proposed that may eliminate nearly 50 percent of the 
remaining Arctostaphylos glandulosa ssp. crassifolia. This rate of 
decline is consistent with historical losses incurred over the last 
decade. As indicated by the commentor, many RPO's protect steep slopes. 
In addition, RPO's also apply to all biologically sensitive lands, 
which are defined to include those lands that support sensitive 
vegetation (San Diego Municipal Code Sec. 101.0462). The ordinance 
further states that biologically sensitive lands shall be preserved in 
their natural state and that any encroachment must be minimal and must 
not adversely impact any rare, threatened or endangered species. This 
presumably would include any sites containing populations of the 
species listed herein.
    The Service acknowledges that the NCCP, MSCP, MHCP, and HMP were 
not adequately discussed in the proposed rule. Most of these programs 
were in the early development stage at the time the rule was developed. 
However, the Service has both monitored and actively participated in 
coordinating the development of these programs as they have matured. 
The MSCP in southern coastal San Diego County has proceeded to a 
significant level. As a result of these planning efforts, one taxon 
(Dudleya blochmaniae ssp. brevifolia) originally proposed as endangered 
with the four subject taxa is being withdrawn (see separate concurrent 
Federal Register notice), while another (Baccharis vanessae) is being 
finalized as threatened instead of endangered. The Service considers 
the mitigation proposed within the MSCP adequate for threats to 
Baccharis vanessae and Arctostaphylos glandulosa ssp. crassifolia 
within the MSCP subregion. However, both taxa have significant 
populations outside this planning area. While other programs may 
ultimately provide significant protection to the taxa considered 
herein, at their current planning stages, the degree of conservation 
afforded these taxa is uncertain and would not significantly alter the 
Service position. A detailed discussion regarding these programs and 
others has been incorporated into the final rule under Factor D (``The 
inadequacy of existing regulatory mechanisms''). Verbesina dissita does 
not occur in San Diego County and is not subject to the MSCP, MHCP, or 
the HMP planning efforts.
    Issue 6: One commenter stated that while the Service asserted that 
State and local regulatory controls are inadequate to protect these 
plant taxa, the Service failed to demonstrate how Federal listing will 
provide further protection. The commenter noted that the Endangered 
Species Act provides no direct protection to listed plants on private 
lands. Specifically, the commenter discussed how Federal listing would 
not provide Arctostaphylos glandulosa ssp. crassifolia, which occurs 
primarily on private lands, additional protection in the two examples 
cited in the proposed rule.
    Service Response: The Service is required to determine whether any 
species qualifies for listing as endangered or threatened based on a 
review of the five factors listed under Section 4 of the Act. The 
Service acknowledges that the level of protection provided for listed 
plant species is not equivalent to the protection accorded federally 
listed animal species. Impacts to listed plant species are addressed 
through consultation with other Federal agencies when a Federal action 
is involved. While Federal actions may be limited on private lands, 
some protection may be afforded through this process. For example, in 
autumn of 1993, the United States Army Corps of Engineers (Corps) 
initiated conferencing regarding the proposed impacts of a large-scale 
development project on a significant population of Arctostaphylos 
glandulosa ssp. crassifolia. The conferencing process resulted in 
improved preservation of that taxon.
    When assessing a habitat conservation plan under section 
10(a)(1)(B) of the Act, the Service must conduct an internal 
consultation pursuant to section 7 of the Act to determine whether 
approval of the plan will jeopardize any federally proposed or listed 
plant or animal species. Additionally, ``take'' of federally listed 
plant species is prohibited under Federal law in circumstances where a 
State law is violated, such as a violation of the provisions of CEQA or 
the California Endangered Species Act.
    Federal listing also provides a significant degree of recognition 
by State and local agencies and private landowners which may result in 
increased protection. Survey requirements and conservation guidelines 
for listed and non-listed species differ considerably under the State 
Coastal Protection Act, CEQA, RPO's and other local conservation 
regulations. Frequently, unlisted rare species are inadequately 
surveyed or given inadequate protection under these processes.
    Issue 7: One commenter claimed that listing these taxa would have a 
negative effect on current multispecies planning efforts.
    Service Response: The Service is required to determine whether any 
species is endangered or threatened based on the applicability of the 
five

[[Page 52377]]

factors listed under Section 4(a)(1) of the Act. While the Service 
supports the intent of multispecies planning efforts to avoid or reduce 
the need for future listing actions within designated planning areas, 
significant populations of the four taxa discussed herein are outside 
approved or nearly completed multispecies conservation plan areas 
(MSCP), or not adequately protected within approved plans (i.e., 
Verbesina dissita within the Central Coastal subregion of Orange 
County). Two of the four taxa are considered covered species under the 
MSCP (Arctostaphylos glandulosa ssp. crassifolia and Baccharis 
vanessae). Future impacts to these taxa within the MSCP have been 
considered and are addressed through planned preservation or management 
for plan participants throughout the subregion (see Available 
Conservation Measures). Thus listing these three taxa will not have a 
negative effect on current planning efforts. Chorizanthe orcuttiana is 
extremely rare and not considered adequately conserved by the MSCP. 
Federal and State listing actions frequently drive multispecies 
planning efforts and offer guidance to these conservation efforts, many 
of which are voluntary. Well-designed multispecies conservation plans 
must consider a wide range of sensitive species and their habitats. The 
necessity for additional listings indicate that these goals have not 
yet been met as indicated in the discussion under Factor D.
    Issue 8: One commenter thought that the Service should designate 
critical habitat for all four taxa included in this rule, stating that 
critical habitat designation would support the mapping efforts and 
recommendations of the City of San Diego's MSCP, and that critical 
habitat should include all remaining southern maritime chaparral. 
Commenters noted that the locations of most of these taxa are available 
to the public through environmental impact reports, rebutting the 
Service's argument that the designation of critical habitat was not 
prudent since this would increase the likelihood of vandalism (i.e., 
habitat destruction) by revealing precise locations.
    Service Response: The Service acknowledges that available public 
environmental documentation has already disclosed the location of many 
populations of the four taxa. The Service finds that designation of 
critical habitat is not prudent because it would not be beneficial to 
any of these four taxa. Critical habitat is only applicable to actions 
that have a Federal nexus. Any Federal action that may affect a listed 
species or designated critical habitat is addressed through section 7 
of the Act, which requires a Federal agency to consult with the Service 
to determine if the action is likely to jeopardize a species or result 
in destruction or adverse modification of critical habitat. Of the four 
taxa, only Chorizanthe orcuttiana (historically) and Baccharis vanessae 
occur on Federal lands, and none are associated with wetlands which 
receive protection under section 404 of the Clean Water Act. It is 
anticipated that few of the remaining populations will be affected by 
actions of Federal agencies.
    Issue 9: The Service should consider economic effects in 
determining whether to list these taxa under the Endangered Species 
Act.
    Service Response: In accordance with section 4(b)(1)(A) of the Act, 
and 50 CFR 424.11(b) of the implementation regulations, listing 
decisions are made solely on the basis of the best available scientific 
and commercial information, without reference to possible economic or 
other impacts of such a determination.
    Issue 10: One commenter stated that collection is not a threat to 
any of the four taxa.
    Service Response: As discussed under Factor B (``Overutilization 
for commercial, recreational, scientific or educational purposes''), 
Chorizanthe orcuttiana is threatened by overcollection because of 
limited population size, horticultural appeal, and the relative ease of 
access to remaining sites.
    Issue 11: Two commenters requested that a qualified party perform 
scientific peer review to reconcile the status of Del Mar manzanita as 
a distinct subspecies, and one suggested that the Service reopen the 
comment period to facilitate this review.
    Service Response: As discussed in the Background section, 
disagreements over the taxonomic status of this species between Wells, 
the primary expert on the species, and Knight, who once proposed that 
the subspecies was not distinct, have been resolved in peer-reviewed 
publications.

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). The 
threats facing these four taxa are summarized in Table 1.

                                          Table 1.--Summary of Threats                                          
----------------------------------------------------------------------------------------------------------------
                                                                                        Develop.       Limited  
                                              Trampling   Alien plants  Fire control    activity       numbers  
----------------------------------------------------------------------------------------------------------------
Arctostaphylos glandulosa ssp. crassifolia            X             X             X             X   ............
Baccharis vanessae........................            X             X             X             X             X 
Chorizanthe orcuttiana....................            X             X   ............            X             X 
Verbesina dissita.........................  ............  ............            X             X   ............
----------------------------------------------------------------------------------------------------------------

These factors and their application to Arctostaphylos glandulosa Eastw. 
ssp. crassifolia (Jeps.) Wells (Del Mar manzanita), Baccharis vanessae 
Beauchamp (Encinitas baccharis), Chorizanthe orcuttiana Parry (Orcutt's 
spineflower), and Verbesina dissita Gray (big-leaved crown-beard) are 
as follows:
    A. The present or threatened destruction, modification, or 
curtailment of its habitat or range. One of the four taxa herein 
(Chorizanthe orcuttiana) is restricted to the south-central coast of 
San Diego County, California. Baccharis vanessae extends inland 32 km 
(20 mi) and north to the Santa Margarita Mountains of northern San 
Diego County. Arctostaphylos glandulosa ssp. crassifolia extends from 
the south-central coast of San Diego County south into northwestern 
Baja California, Mexico. Verbesina dissita occurs in two disjunct 
populations, one in coastal southern Orange County and one along the 
coast in northwestern Baja California, Mexico. The most imminent threat 
facing all four taxa and their associated habitats is the ongoing and 
threatened destruction and modification of habitat by one or more of 
the following--urban development, agricultural development, 
recreational

[[Page 52378]]

activities, trampling, and fuel modification activities.
    Arctostaphylos glandulosa ssp. crassifolia (Del Mar manzanita) is 
restricted to sandstone-derived soils along the south-central coast of 
San Diego County, extending south to Mesa el Descanseo 40 km (25 mi) 
south of the United States border, Baja California, Mexico. This taxon 
is restricted almost exclusively to southern maritime chaparral and is 
considered to be an indicator species for this plant community. 
Estimates indicate that between 82 and 93 percent of southern maritime 
chaparral vegetation in San Diego County has been lost as a result of 
urban and agricultural development (Oberbauer and Vanderwier 1991; 
OGDEN 1993; D. Hogan, in litt., 1993). Between 1980 and 1990, the 
population of San Diego County increased by more than 600,000 people. 
Most of this increase occurred on or near the coast at sites 
historically occupied, in part, by southern maritime chaparral. About 
140 to 180 ha (300 to 450 ac) (12 to 30 percent) of southern maritime 
chaparral is currently located within approved or proposed developments 
in San Diego County (RECON 1987, Roberts 1992, SEB 1993a; D. Hogan, in 
litt., 1993; Gail Kobetich, USFWS, in litt., 1993). Less than 30 
percent of the remaining southern maritime chaparral is preserved in 
parks (e.g., Torrey Pines State Park) with long-term management for 
conservation.
    While 25 of 26 populations of Arctostaphylos glandulosa ssp. 
crassifolia are still extant in part, the majority of these populations 
have been greatly reduced and significantly fragmented by urban and 
agricultural development, most of which has occurred since 1982. About 
a 50 percent decline in the number of stands and the number of 
individuals has occurred since 1982 (Roberts 1993, SEB 1993b). Of the 
remaining individuals, the majority are distributed in highly 
fragmented habitat along the margins of residential development.
    Over 75 percent of Arctostaphylos glandulosa ssp. crassifolia in 
the United States occurs within 6 concentrations located in Carlsbad, 
Encinitas, Del Mar, and Torrey Pines State Park. Four of the six 
populations, located in Carlsbad and Encinitas, are threatened in part 
by approved or proposed development projects. These projects will 
result in the elimination of over 1,900 individuals (over 35 percent) 
of A. g. ssp. crassifolia that occurs within these 6 populations 
through direct impacts. Furthermore the additional loss of 1,000 
individuals (20 percent) will likely result from indirect impacts such 
as fuel modification and edge effects (Roberts 1993, SEB 1993a). 
Several of the smaller populations of A. g. ssp. crassifolia in 
Encinitas, Carlsbad, Carmel Valley and on Carmel Mountain are also 
threatened by development and associated indirect impacts (Roberts 
1992, SEB 1993b).
    The status of Arctostaphylos glandulosa ssp. crassifolia and its 
habitat in extreme northwestern Baja California, Mexico, are not well 
documented. However, this species only extends some 40 km (25 mi) south 
of the United States border. This region represents one of the most 
severely impacted areas in Baja California. Many of the same factors 
(urban and agricultural development) that have affected the status of 
this taxon in the United States are also clearly having an impact south 
of the border (Oberbauer 1992).
    Chorizanthe orcuttiana (Orcutt's spineflower) is restricted to 
exposed sandy soils at two sites in coastal south-central San Diego 
County. One site, located at Torrey Pines State Park, is protected. 
However, this population has not been seen since 1987 (T. Oberbauer, 
pers. comm., 1992). The only currently known population is within Oak 
Crest Park in Encinitas, and this population is threatened by proposed 
recreational facilities (see Factor D). The reduction of the southern 
maritime chaparral in the park will have a significant impact on the 
long-term viability of the only existing C. orcuttiana population. 
Estimates indicate that between 82 and 93 percent of southern maritime 
chaparral vegetation in San Diego County has been lost as a result of 
urban and agricultural development (Oberbauer and Vanderwier 1991; 
OGDEN 1993; D. Hogan, in litt., 1993).
    Baccharis vanessae (Encinitas baccharis) is associated with dense 
mixed chaparral and southern maritime chaparral. Fourteen populations 
(and one isolated individual) currently exist. Seven of these remaining 
populations are threatened by development projects. Five populations 
are in the Del Dios Highlands within the Rancho Cielo project area. 
Three of these are threatened by urban development and a golf course 
(CDFG 1992). Clearing vegetation in 1991 and 1992 and application of 
herbicides in 1993, in combination with a serious fire in 1990, may 
already have eliminated some of these plants. Two other populations 
near Lake Hodges have been identified as threatened by proposed 
developments (CDFG 1992) or inundation from a proposed water storage 
facility (OGDEN 1995b).
    In the United States, Verbesina dissita (big-leaved crown-beard) is 
restricted to rugged coastal hillsides and canyons in southern maritime 
chaparral and, to a lesser extent, coastal sage scrub and mixed 
chaparral, along a 3.2 km (2 mi) stretch of coastline in Laguna Beach, 
Orange County. Although some populations extend into Aliso-Woods 
Regional Park, the majority of the remaining populations are on private 
land and these populations are threatened by residential development 
and fuel modification activities (CDFG 1992).
    Residential development and fuel modification activities continue 
to incrementally impact the main Laguna Beach population of Verbesina 
dissita (CDFG 1992). At least four residences were built directly on V. 
dissita plants after its State-listing as a threatened species in 1989. 
Although the individual houses eliminated a relatively small number of 
plants, local ordinances require the creation of a fuel modification 
zone up to 46 m (150 ft) from the residence (Richard Drewberry, Laguna 
Beach Fire Department, pers. comm., 1991). Over 20 percent of V. 
dissita occurrences are within 46 m (150 ft) of residential 
development. If these ordinances are fully implemented, a significant 
portion of this species in the United States would be eliminated. In 
1984, a fuel break was cut through one population on Temple Hill. The 
species normally persists in relatively dense brush, although it is 
known to respond favorably to some clearing and fires. The plants in 
the fuel break began to decline after four years (Fred Roberts, USFWS, 
pers. obs., 1992). In 1991, the City of Laguna Beach used goats to 
clear fuel breaks despite objections that the goats could potentially 
consume rare plant species (Dr. Peter Bowler, University of California, 
Irvine, pers. comm., 1992). The City of Laguna Beach has indicated that 
many areas containing dense brush adjacent to residential development 
will be cleared (R. Drewberry, pers. comm., 1991). These areas are 
occupied in part by V. dissita. One development completed in 1989 has 
placed irrigation and hydromulching over one population. Verbesina 
dissita is not expected to persist with overwatering and competition 
from Atriplex semibaccata (Australian saltbush), which is frequently 
used in landscaping along the borders of development (F. Roberts, pers. 
obs., 1992).
    The remaining habitat of Verbesina dissita in the United States is 
relatively contiguous. However, several developments have been proposed 
that will reduce and further fragment this rare vegetation association. 
Only 20 percent of the habitat is preserved (i.e., in Aliso-Woods 
Canyon Regional Park).

[[Page 52379]]

    The majority of Verbesina dissita populations occur south of the 
United States-Mexican border in coastal, northwestern Baja California, 
where it occurs in vegetation associations similar to those found in 
Laguna Beach, California. The status of V. dissita and its habitat in 
Mexico are not well documented. According to one prominent researcher, 
the distribution of V. dissita in Mexico is spotty (R. Moran, pers. 
comm., 1992). Over 20 populations are known between Punta Descanseo and 
San Telmo near Cabo Colonet (Roberts 1988). A survey of historic 
localities in 1988 between Punta el Descanseo and Punta Santo Tomas 
determined that over 25 percent of these localities had been urbanized 
or converted to agriculture. Four separate localities are known from 
Punta Bunda just south of Ensenada. However, three of these are 
threatened by changes in land use from relatively pristine conditions 
in 1987 to extensive clearing in addition to rural condominium 
development in 1990 (F. Roberts, memo to file, 1992). Many of the same 
factors threatening the species in the United States (i.e., urban and 
agricultural development) are threatening this species in Mexico as 
well (Oberbauer 1992).
    B. Overutilization for commercial, recreational, scientific, or 
educational purposes. Some taxa have become vulnerable to collecting by 
curiosity seekers as a result of increased publicity following the 
publication of listing proposals. Chorizanthe orcuttiana is highly 
restricted and is vulnerable to over-collection because of its rarity. 
Some professional and amateur botanists are known to favor collection 
of rare species, either to have examples in their collection or because 
these specimens are valuable to trade with other institutions.
    C. Disease or predation. Disease is not known to be a factor for 
any of the taxa. Although swollen galls on the stems of Baccharis 
vanessae indicate parasitism by a moth or butterfly (Beauchamp 1980), 
insect predation of the four taxa is not well understood.
    D. The inadequacy of existing regulatory mechanisms. Existing 
regulatory mechanisms that may provide some protection for 
Arctostaphylos glandulosa ssp. crassifolia, Baccharis vanessae, 
Chorizanthe orcuttiana, and Verbesina dissita include--(1) the 
California Endangered Species Act (CESA); (2) the California 
Environmental Quality Act (CEQA); (3) the California Natural Community 
Conservation Planning Program (NCCP), which includes the San Diego 
Multiple Species Conservation Plan (MSCP), Multiple Habitat 
Conservation Plan (MHCP), and Carlsbad Habitat Management plan (HMP); 
(4) the Federal Endangered Species Act in those cases where these taxa 
occur in habitat occupied by other listed species; (5) conservation 
provisions under the Federal Clean Water Act; (6) land acquisition and 
management by Federal, State, or local agencies, or by private groups 
and organizations; and (7) local laws and regulations.

State Laws and Regulation:

    Pursuant to the Native Plant Protection Act (chapter 10 section 
1900 et seq. of the California Fish and Game Code) and California 
Endangered Species Act (chapter 1.5 section 2050 et seq. of the Fish 
and Game Code), the California Fish and Game Commission listed 
Baccharis vanessae as endangered in 1987 and Chorizanthe orcuttiana in 
1979. Verbesina dissita was listed as threatened by the State of 
California in 1989. Although both statutes prohibit the ``take'' of 
State-listed plants (chapter 10 section 1908 and chapter 1.5 section 
2080), some projects do not comply with State law. As an example, in 
1992, V. dissita plants in Laguna Beach were removed without the 
State's knowledge (Ken Berg, CDFG, pers. comm., 1992).
    Local lead agencies empowered to uphold and enforce the regulations 
of the CEQA have made determinations that have or will adversely affect 
these taxa and their southern maritime chaparral habitat. The CEQA 
requires that a project proponent publicly disclose the potential 
environmental impacts of proposed projects. The public agency with 
primary authority or jurisdiction over the project is designated as the 
lead agency, and is responsible for conducting a review of the project 
and consulting with other agencies concerned with resources affected by 
the project. Required biological surveys are often inadequate and 
project proponents may disregard the results of surveys if occurrences 
of sensitive species are viewed as a constraint on project design. 
Mitigation measures used to condition project approvals are often 
experimental and fail to adequately guarantee protection of sustainable 
populations of the taxa considered herein. CEQA decisions are also 
subject to overriding social and economic considerations.
    To illustrate, the environmental documentation for a large-scale 
development project in Carlsbad did not include sufficient surveys for 
Chorizanthe orcuttiana or Baccharis vanessae (Pacific Southwest 
Biological Services 1990; Larry Sward, SEB, in litt., 1993), although 
the only currently known population of C. orcuttiana occurs in 
Encinitas, less than 3.2 km (2 mi) distant, and one of the largest 
populations of B. vanessae occurs on an adjacent parcel. One of the 
largest populations of Arctostaphylos glandulosa ssp. crassifolia also 
occurs within this project site. Although impacts to this taxon were 
identified as significant under the CEQA, the adopted mitigation 
measures were considered to be insufficient (S. Lacy, in litt., 1991). 
In another project within the City of Carlsbad, the elimination of a 
population of A. g. ssp. crassifolia was not considered to be a 
significant impact, even though the taxon was a Federal category 2 
candidate for listing at the time (M.F. Ponseggi and Associates 1993). 
Impacts to category 2 candidates were considered significant under the 
CEQA prior to 1996 revisions in candidate policy that eliminated 
category 2 ranking (61 FR 7596; February 28, 1996).
    Moreover, transplantation is frequently used to mitigate for the 
loss of rare plant species; however, it has yet to be demonstrated to 
provide for long-term viability of any of the four taxa. Several 
attempts at transplanting Baccharis vanessae and Arctostaphylos 
glandulosa ssp. crassifolia have been reported by Hall (1987). Attempts 
to transplant B. vanessae at Quail Botanical Garden and at San Dieguito 
County Park failed shortly after the monitoring period ended. Six years 
after individuals of A. g. ssp. crassifolia were transplanted at Quail 
Botanical Garden, 75 percent of the plants had died.
Regional Planning Efforts
    In 1991, the State of California established the NCCP program to 
address conservation needs throughout the State. The focus of current 
planning programs is the coastal sage scrub community in southern 
California, although other vegetation communities are being addressed 
in an ecosystem-level approach. Southern maritime chaparral and the 
four taxa are currently being considered under the MSCP, MHCP, and the 
Orange County Central Coastal NCCP programs. The MHCP, which will 
include the Carlsbad HMP program, is still in the early developmental 
phase and thus it is uncertain to what degree it will be successful in 
providing protection for these taxa.
    The NCCP for the Central and Coastal Subregion of Orange County was 
approved in July of 1996. Only one of the four taxa (Verbesina dissita) 
occurs within the Central/Coastal NCCP. While the entire population of 
this species in

[[Page 52380]]

the United States is within this subregion, only about 10 percent of 
the species'' distribution is protected by the Central/Coastal Plan. 
The species is not adequately conserved, nor is it considered a 
``covered species'' under the plan. Covered species are those species 
that have been adequately considered in terms of long-term preservation 
within a Habitat Conservation Planning Area or NCCP subregion. Under an 
agreement with the participants, CDFG, and the Service, future 
potential impacts for covered species are considered adequately 
addressed through proposed preservation, mitigation, and management.
    Since the publication of the proposed rule, the MSCP, a regional 
planning effort in southwestern San Diego County, has been finalized 
and submitted to the Service as part of an application for a section 
10(a)(1)(B) incidental take permit for 85 species, including 
Arctostaphylos glandulosa ssp.0 crassifolia and Baccharis vanessae. The 
Service and the City of San Diego have jointly prepared a Recirculated 
Environmental Impact Report/Environmental Impact Statement, Issuance of 
Take Authorizations for Threatened and Endangered Species due to Urban 
Growth within the Multiple Species Conservation Program (MSCP) Planning 
Area. This document, released on August 30, 1996, for a 45-day public 
review period, assesses the effects of land-use decisions that will be 
made by local jurisdictions to implement the plan and the effects of 
the proposed issuance of the incidental take permit on the 85 species. 
A decision on the permit issuance is expected in late 1996.
    The MSCP will, upon approval, set aside preservation areas and 
provide monitoring and management for the 85 ``covered species'' 
addressed in the permit application, including Arctostaphylos 
glandulosa ssp. crassifolia and Baccharis vanessae. ``Covered species'' 
are taxa that will be adequately conserved by the plan's proposed 
preservation and management. About 30 percent of the A. g. ssp. 
crassifolia population (without consideration to edge effect) is 
protected within the MSCP (about 90 percent of the species' total 
populations are within the subregion) and about 45 percent of B. 
vanessae populations are protected within the MSCP (about 70 percent of 
the total populations are within the subregion). While all threats have 
not been eliminated for these two taxa within the subregion, the 
Service believes that future potential impacts will be adequately 
addressed by management incorporated into the final MSCP agreement. 
Project proponents in areas outside the MSCP subregion will be required 
to coordinate with the Service on these taxa where applicable.
Federal Laws and Regulations
    The Endangered Species Act may already afford protection to 
candidate or other sensitive species if they co-exist with species 
already listed as threatened or endangered under the Act. Although the 
coastal California gnatcatcher (Polioptila californica californica) is 
listed as threatened under the Act and overlaps with the range of the 
taxa considered herein, the coastal California gnatcatcher primarily 
utilizes a different habitat (coastal sage scrub). Additionally, under 
provisions of section 10(a) of the Act, the Service may permit the 
incidental ``take'' of the gnatcatcher during the course of an 
otherwise legal activity provided that the taking will not appreciably 
reduce the likelihood of its survival and recovery in the wild. 
Projects developed with authorization for take of the coastal 
California gnatcatcher may, however, contribute to the decline of 
Arctostaphylos glandulosa ssp. crassifolia, Baccharis vanessae and 
Chorizanthe orcuttiana in areas where the project area includes both 
coastal sage scrub and southern maritime chaparral.
    Some protection has been afforded to these taxa through section 404 
of the Clean Water Act (G. Kobetich, in litt., 1993). However, since 
the majority of these taxa occur in upland habitat or in isolated and 
fragmented parcels, it is unlikely that actions affecting the taxa will 
require section 404 permits.
Land Acquisition and Management
    Land acquisition and management by State or local agencies or by 
private groups and organizations have contributed to the protection of 
some localities containing the taxa included in this rule. However, as 
discussed below, these efforts are inadequate to assure the long-term 
survival of these four taxa. For example, Torrey Pines State Park and 
Crest Canyon Preserve (Del Mar) contain significant populations of 
Arctostaphylos glandulosa ssp. crassifolia. While Torrey Pines State 
Park is managed for long-term preservation of biological resources, the 
populations within the park contain less than 20 percent of the 
remaining A. g. ssp. crassifolia individuals. The populations of this 
taxon in Crest Canyon Preserve Park are affected by trampling 
associated with recreational activities and edge effects (see Factor 
E). A small population of A. g. ssp. crassifolia located within San 
Dieguito County Park is also threatened by edge effects and trampling 
from recreational activities.
    Three of the species considered within this rule (Arctostaphylos 
glandulosa ssp. crassifolia, Baccharis vanessae, and Chorizanthe 
orcuttiana) occur within Oak Crest Park in Encinitas. While this park 
is under public ownership and management, these plants are threatened 
by the construction of recreational facilities, invasive exotics, and 
trampling (see Factors A and E).
    A single population of Baccharis vanessae is known from the 
Cleveland National Forest in the Santa Margarita Mountains (S. Boyd, 
Rancho Santa Ana Botanical Garden, in litt., 1992). While this 
population is protected in part because it is isolated, it represents 
less than 10 percent of the known populations of this species. In 
Orange County, Verbesina dissita extends into Aliso-Woods Canyons 
Regional Park. However, this park encompasses less than 10 percent of 
the known populations of the species. Additionally, while this county 
regional park is, in part, managed for biological conservation, V. 
dissita is threatened by fuel modification (i.e., thinning, mechanical 
clearing, and irrigation) and exotic vegetation replacement at the park 
boundary.
    These plant taxa also occur in ``dedicated'' open space frequently 
in association with development projects. These areas are often 
specifically set aside for conservation as required by local and county 
project approvals and/or the CEQA, and are managed by private 
organizations, individuals, corporations, or local jurisdictions. 
However, open space dedications do not incorporate the principles of 
conservation biology. Many are inadequately configured, or are too 
small for the long-term preservation of these taxa (see Factor E). 
County open space designations within General Development Plans are 
subject to amendments and, therefore, cannot be considered as permanent 
conservation.
Local Laws, Regulations, and Ordinances
    The four taxa in this rule have been identified as sensitive under 
various local laws, regulations and ordinances. However, development 
projects continue to be approved and implemented with designs that do 
not preserve populations or habitat for the taxa considered herein. 
Currently, the Service is aware of 10 approved or proposed development 
projects that will directly or indirectly impact about 3,000

[[Page 52381]]

individuals of Arctostaphylos glandulosa ssp. crassifolia. While these 
projects have been or currently are subject to review under existing 
local regulatory mechanisms and conservation plans, this taxon is still 
declining rapidly. Management and recovery become increasingly 
difficult as options for preservation are reduced.
    Existing local land-use regulations have failed to protect these 
taxa as exemplified by Oak Crest Park in Encinitas. Although a portion 
of the park was originally set aside for conservation purposes by the 
County of San Diego (D. Hogan, in litt., 1991; T. Oberbauer, pers. 
comm., 1992), recreational development has eliminated southern maritime 
chaparral habitat and individuals of Arctostaphylos glandulosa ssp. 
crassifolia, Baccharis vanessae, and Chorizanthe orcuttiana. One area 
recently developed included a natural preserve area set aside under an 
agreement between the City and the California Coastal Commission. 
Current recreational development plans for Oak Crest Park, including 
the construction of a community center, swimming pool and numerous 
walking paths, will impact two of these taxa (A. g. ssp. crassifolia 
and B. vanessae). The proposed development will reduce the B. vanessae 
population and the extent of southern maritime chaparral within the 
park by approximately one-third (David Wigginton, City of Encinitas 
Community Services, pers. comm., 1992).
    Another example demonstrating how existing regulatory mechanisms 
are inadequate is provided by a project in the City of Carlsbad that 
was originally approved circa 1980. The project area contained the 
northernmost known population of Arctostaphylos glandulosa ssp. 
crassifolia and a significant stand of southern maritime chaparral. 
When a city official was approached by the project proponent in 1992, 
the city informed the proponent that the existing CEQA documentation 
was inadequate and that additional biological surveys would be 
required. Despite this finding, the proponent was able to obtain 
grading permits to clear the land without additional documentation 
(Terri Stewart, CDFG, pers. comm., 1992).
    Several development projects have proceeded without adequate 
surveys for Chorizanthe orcuttiana (City of Carlsbad and Fieldstone/La 
Costa Associates 1994). Arctostaphylos glandulosa ssp. crassifolia has 
been considered in the majority of these plans; however projects have 
recently been proposed and approved that have or will directly or 
indirectly eliminate nearly half of the population within these 
planning areas (SEB 1993a, 1993b). Because A. g. ssp. crassifolia has 
already declined by about 50 percent over the last decade, these 
additional significant losses will contribute to the further decline of 
this taxon and may affect its recovery (Roberts 1993; SEB 1993b; G. 
Kobetich, in litt., 1993). Although the only extant population of C. 
orcuttiana is on public land within the jurisdiction of the MHCP, no 
protection measures have been developed or implemented for this 
population. Several important populations of Baccharis vanessae are 
threatened by current project proposals that will reduce the 
effectiveness of the MHCP, when developed, to adequately stabilize 
populations within the subregion (OGDEN 1995a; D. Hogan, in litt., 
1991; D. Wigginton, pers. comm., 1992). The additional recognition that 
results from listing is expected to generate additional efforts in 
providing for the long-term preservation of these four taxa.
Laws and Regulation in Mexico
    The range of Arctostaphylos glandulosa ssp. crassifolia and 
Verbesina dissita continues south along the Pacific coast into 
northwestern Baja California, Mexico. Mexico has laws that presumably 
provide protection to rare plants; however, enforcement of these laws 
is lacking (USFWS 1992b).
    In summary, although most of these taxa are receiving at least some 
protection through existing regulatory mechanisms, threats continue to 
adversely affect the taxa, as indicated by their declining status.
    E. Other natural or manmade factors affecting their continued 
existence. At least two of the taxa (Baccharis vanessae and Chorizanthe 
orcuttiana) may be threatened by a risk of extinction from naturally 
occurring events because of their restricted distribution and small 
population size. Genetic viability can be reduced in small populations, 
making them less adaptable to changes in the environment. The potential 
for extirpation by virtue of their small population sizes can be 
exacerbated by natural causes such as drought or fire. For example, the 
impact of fire on Baccharis vanessae is not fully understood, yet a 
1,200 ha (3,000 ac) fire in the Del Dios highlands burned four of the 
known populations in September 1990 (CDFG 1992, Los Angeles Times 
1992). Many populations are now in close proximity to residential 
development, and are threatened by edge effects including fuel 
modification activities, fire suppression, the invasion of exotic plant 
species, and increased human activities associated with nearby 
urbanization. Additionally, unidentified pollinators or seed-dispersal 
agents for these taxa may also be impacted by development.
    Habitat fragmentation and isolation, in addition to fuel 
modification, threaten the taxa in areas adjacent to residential 
development. For example, nearly 15 percent of extant Arctostaphylos 
glandulosa ssp. crassifolia occurs in small, fragmented, and isolated 
parcels of open space (Roberts 1993). Of the six largest populations of 
this taxon, 20 percent of the individuals are within 60 m (200 ft) of 
existing development and are threatened by edge effects (Roberts 1993, 
SEB 1993a). This is exemplified by Crest Canyon Preserve, where nearly 
50 percent of the approximately 1,000 individuals of A. g. ssp. 
crassifolia are within 60 m (200 ft) of development. Arctostaphylos 
glandulosa ssp. crassifolia is also threatened by trampling where 
trails have been cut through populations by recreationalists and farm 
workers (Hogan 1990; CDFG 1992; F. Roberts and E. Berryman, USFWS, 
pers. obs.).
    Conflicts between fire management and preservation arise when 
insufficient buffers exist between sensitive biological resources and 
residential dwellings. A recent example includes clearing of about 1 ha 
(2 ac) of southern maritime chaparral adjacent to a new residential 
development in Carlsbad in June 1992.
    Baccharis vanessae is limited to small numbers, comprising only 14 
extant populations containing about 2,000 individuals. No population is 
known to have over 300 individuals and 5 of these populations have 
fewer than 6 individuals. One individual has been discovered on the 
western slopes of Carmel Mountain.
    Chorizanthe orcuttiana, known from a single locality, is the most 
vulnerable of the four taxa. This species is threatened by trampling by 
farm workers and recreationalists because of its small size and its 
preference for open areas, which tend to attract foot traffic through 
otherwise dense chaparral vegetation (F. Roberts and E. Berryman, pers. 
obs.). The only known site could be eliminated in a single event if a 
particularly large number of people were to walk through and trample 
the population. Exotic grass and weed species are also threatening the 
population.
    All four taxa are potentially threatened by the interruption of the 
natural fire cycle. Fragmentation has rendered individual populations 
more susceptible to fire events that may either

[[Page 52382]]

occur too frequently or be suppressed too long to maintain a healthy 
southern maritime chaparral habitat.
    The Service has carefully assessed the best scientific and 
commercial information available regarding the past, present, and 
future threats faced by these four taxa in determining to make this 
rule final. Based on this evaluation, the preferred action is to list 
Arctostaphylos glandulosa ssp. crassifolia and Chorizanthe orcuttiana 
as endangered. These taxa are in danger of extinction throughout all or 
a significant portion of their ranges due to habitat alteration and 
destruction resulting from urban, recreational and agricultural 
development; fuel modification activities; trampling by farm workers 
and recreational activities; inadequacy of existing regulatory 
mechanisms; naturally occuring events due to limited populations; and 
competition from exotic plant species. For the reasons discussed below, 
the Service finds that Verbesina dissita and Baccharis vanessae are 
likely to become endangered within the foreseeable future throughout 
all or a significant portion of their range. Although V. dissita is 
extremely threatened in the United States by development and fuel 
modification activities, the status of this species in Baja California, 
Mexico, is considerably better due to a larger number of extant 
populations. However, it is still threatened by similar activities in 
Mexico. Therefore the preferred action is to list V. dissita as 
threatened. While nearly half of the known B. vanessae populations 
continue to be at risk from urban development, inundation from a 
proposed water storage facility, and fire management methods, the 
species is not in immediate danger of extinction. The Service therefore 
revises the preferred action for B. vanessae from listing as endangered 
in the original proposed regulation to listing as threatened in this 
final rule. In addition, the MSCP in San Diego County will offer 
significant management and preservation for about half of the 
populations upon its authorization. Critical habitat is not being 
proposed for these taxa for the reasons discussed below.

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 the taxa 
discussed in this rule at this time. 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 such threat 
to the species; or (2) such designation of critical habitat would not 
be beneficial to the species.
    As discussed under Factor B, Chorizanthe orcuttiana is particularly 
threatened by taking, specifically overcollecting, an activity 
difficult to regulate and enforce. Taking is only regulated by the Act 
with respect to plants in cases of (1) removal and reduction to 
possession of federally listed plants from lands under Federal 
jurisdiction, or their malicious damage or destruction on such lands; 
and (2) removal, cutting, digging-up, or damaging or destroying in 
knowing violation of any State law or regulation, including State 
criminal trespass law. The publication of precise maps and descriptions 
of critical habitat in the Federal Register would make these plants 
more vulnerable to incidents of collection or vandalism and, therefore, 
could contribute to the decline of this species.
    Critical habitat designation provides protection only on Federal 
lands or on private lands when there is Federal involvement through 
authorization or funding of, or participation in, a project or 
activity. Of the taxa discussed herein, only one population of 
Baccharis vanessae is known to occur on Federal lands. All Federal and 
state agencies and local planning agencies involved have been notified 
of the location and importance of protecting the habitat of these taxa. 
Protection of their habitat will be addressed through the recovery 
process and through the section 7 consultation process. Section 7(a)(2) 
of the Act requires Federal agencies, in consultation with the Service, 
to ensure that any action authorized, funded, or carried out by such 
agency, does not jeopardize the continued existence of a federally 
listed species, or does not destroy or adversely modify designated 
critical habitat. The taxa in this rule are all confined to small 
geographic areas and each population is composed of so few individuals 
that the determinations for jeopardy and adverse modification would be 
similar. Therefore, designation of critical habitat provides no 
additional benefit beyond those that these taxa would receive by virtue 
of their listing as endangered or threatened species and likely would 
increase the degree of threat from vandalism, collecting, or other 
human activities. The Service finds that designation of critical 
habitat is not prudent for these taxa 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 local agencies, 
private organizations, and individuals. The Act provides for possible 
land acquisition from willing sellers 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 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 52383]]

    Although only one of the four taxa (Baccharis vanessae at the 
Olivenhein Water Storage Facility) is known to be directly affected by 
activities permitted under section 404 of the Clean Water Act, effects 
of actions that include direct and indirect impacts that are 
interrelated or interdependent with the taxa under consideration may 
require a permit under section 404 of the Clean Water Act. 
Additionally, two of the taxa (Arctostaphylos glandulosa ssp. 
crassifolia and B. vanessae) are known to occur in areas where highway 
projects, which may involve Federal funding and the Federal Highways 
Administration, have been proposed. At least one taxon (B. vanessae) 
occurs on Federal land, within the Cleveland National Forest and within 
1 km (0.6 mi) of Camp Pendelton Marine Base. New populations of these 
taxa could be discovered at Miramar Naval Air Station, Point Loma Naval 
Reserve, and Camp Pendelton Marine Base. These Federal nexuses would 
require initiation of section 7 consultation on actions that may affect 
the taxa.
    Two of these species, Arctostaphylos glandulosa ssp. crassifolia 
and Baccharis vanessae, are considered covered species under the MSCP. 
These species will receive benefits from the plan upon its approval. 
These benefits include--(1) preservation of the majority of populations 
within the subregion including two major populations of A. g. ssp. 
crassifolia and one and a half major populations of B. vanessae, (2) 
management plans that will address impacts from fuel management and 
close proximity of existing and proposed development, and (3) 
monitoring of the status of these populations. Some populations within 
this subregion will be eliminated or reduced, but it has been 
determined that the populations preserved under the plan will be 
adequate to stabilize the status of these taxa within the MSCP planning 
area.
    The Act and its implementing regulations set forth a series of 
general prohibitions and exceptions that apply to all endangered or 
threatened plants. All prohibitions of section 9(a)(2) of the Act, 
implemented by 50 CFR 17.61 (endangered plants) or 17.71 (threatened 
plants), 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 
any area under Federal jurisdiction and the removal, cutting, digging 
up, or damaging or destroying of such endangered plants in knowing 
violation of any State law or regulation, including State criminal 
trespass law. Section 4(d) of the Act allows for the provision of such 
protection to threatened species through regulation. This protection 
may apply to Baccharis vanessae and Verbesina dissita in the future if 
regulations are promulgated. Seeds from cultivated specimens of 
threatened plant species are exempt from these prohibitions provided 
that their containers are marked ``Of Cultivated Origin''. Certain 
exceptions to the prohibitions 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 species under certain circumstances. 
Such permits are available for scientific purposes and to enhance the 
propagation or survival of the species. For threatened plants, permits 
are also available for botanical or horticultural exhibition, 
educational purposes, or special purposes consistent with the purpose 
of the Act. It is anticipated that few trade permits would ever be 
sought or issued because none of the four taxa are common in 
cultivation or in the wild.
    It is the policy of the Service, published in the Federal Register 
on July 1, 1994 (59 FR 34272), to identify to the maximum extent 
practicable at the time a species is listed those activities that would 
or would not constitute a violation of section 9 of the Act. The intent 
of this policy is to increase public awareness of the effect of this 
listing on proposed and ongoing activities within the species' range. 
One of these four taxa (Baccharis vanessae) is known to occur on lands 
under the jurisdiction of the U.S. Forest Service and populations of 
the taxa may potentially be discovered on lands under the jurisdiction 
of the Department of Defense (Navy). Collection, damage or destruction 
of any of these species on Federal lands is prohibited, although in 
appropriate cases a Federal endangered species permit may be issued to 
allow collection. Such activities on non-Federal lands would constitute 
a violation of section 9 if conducted in knowing violation of State law 
or regulations or in violation of State criminal trespass law. 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 Carlsbad Field Office (see ADDRESSES section). Requests 
for copies of the regulations concerning listed plants and general 
inquiries regarding prohibitions and permits may be addressed to the 
U.S. Fish and Wildlife Service, Ecological Services, Endangered Species 
Permits, 911 N.E. 11th Avenue, Portland, Oregon 97232-4181 (telephone 
503/231-2063; facsimile 503/231-6243).

National Environmental Policy Act

    The Fish and Wildlife Service has determined that Environmental 
Assessments 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

    A complete list of all references cited herein is available upon 
request from the Carlsbad Field Office (see ADDRESSES section).

Author

    The primary author of this final rule is Fred M. Roberts, Jr., 
Carlsbad 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.

Regulation Promulgation

    Accordingly, part 17, subchapter B of chapter I, title 50 of the 
Code of Federal Regulations, is amended as set forth below:

PART 17--[AMENDED]

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

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

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


Sec. 17.12  Endangered and threatened plants.

* * * * *

[[Page 52384]]

    (h) * * *

--------------------------------------------------------------------------------------------------------------------------------------------------------
                        Species                                                                                                                         
--------------------------------------------------------    Historic range            Family             Status      When listed    Critical    Special 
         Scientific name                Common name                                                                                 habitat      rules  
--------------------------------------------------------------------------------------------------------------------------------------------------------
        FLOWERING PLANTS:                                                                                                                               
                                                                                                                                                        
                                                                                                                                                        
                   *                  *                  *                  *                  *                  *                  *                  
Arctostaphylos glandulosa ssp.     Del Mar manzanita...  U.S.A. (CA), Mexico.  Ericaceae...........  E                       589           NA         NA
 crassifolia.                                                                                                                                           
                                                                                                                                                        
                   *                  *                  *                  *                  *                  *                  *                  
Baccharis vanessae...............  Encinitas baccharis.  U.S.A. (CA).........  Asteraceae..........  T                       589           NA         NA
                                                                                                                                                        
                   *                  *                  *                  *                  *                  *                  *                  
Chorizanthe orcuttiana...........  Orcutt's spineflower  U.S.A. (CA).........  Polygonaceae........  E                       589           NA         NA
                                                                                                                                                        
                   *                  *                  *                  *                  *                  *                  *                  
Verbesina dissita................  Big-leaved crown-     U.S.A. (CA), Mexico.  Asteraceae..........  T                       589           NA         NA
                                    beard.                                                                                                              
                                                                                                                                                        
                   *                  *                  *                  *                  *                  *                  *                  
--------------------------------------------------------------------------------------------------------------------------------------------------------

    Dated: September 27, 1996.
John G. Rogers,
Acting Director, Fish and Wildlife Service.
[FR Doc. 96-25462 Filed 10-4-96; 8:45 am]
BILLING CODE 4310-55-P