[Federal Register Volume 64, Number 171 (Friday, September 3, 1999)]
[Rules and Regulations]
[Pages 48307-48324]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-22969]


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DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service

50 CFR Part 17

RIN 1018-AE22


Endangered and Threatened Wildlife and Plants; Final Endangered 
Status for 10 Plant Taxa From Maui Nui, HA

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Final rule.

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SUMMARY: Under the authority of the Endangered Species Act of 1973 
(Act), as amended, we (the U.S. Fish and Wildlife Service (Service)) 
determine endangered status for 10 plant taxa--Clermontia samuelii (oha 
wai), Cyanea copelandii ssp. haleakalaensis (haha), Cyanea glabra 
(haha), Cyanea hamatiflora ssp. hamatiflora (haha), Dubautia 
plantaginea ssp. humilis (na`ena`e), Hedyotis schlechtendahliana var. 
remyi (kopa), Kanaloa kahoolawensis (kohe malama malama o Kanaloa), 
Labordia tinifolia var. lanaiensis (kamakahala), Labordia triflora 
(kamakahala), and Melicope munroi (alani). All 10 taxa are endemic to 
the Maui Nui group of islands in the Hawaiian Islands. This group 
includes Maui, Molokai, Lanai, and Kahoolawe. Clermontia samuelii, 
Cyanea copelandii ssp. haleakalaensis, Cyanea glabra, Cyanea 
hamatiflora ssp. hamatiflora, and Dubautia plantaginea ssp. humilis are 
endemic to the island of Maui. Hedyotis schlechtendahliana var. remyi 
and Labordia tinifolia var. lanaiensis are

[[Page 48308]]

endemic to the island of Lanai. Kanaloa kahoolawensis is endemic to the 
island of Kahoolawe, although pollen studies indicate it may have been 
a dominant species on Oahu until 800 years ago. Labordia triflora is 
endemic to Molokai, and Melicope munroi is found on Lanai but was also 
known historically from Molokai. The 10 plant taxa and their habitats 
have been variously affected or are currently threatened by one or more 
of the following--competition, predation or habitat degradation from 
alien species, natural disasters, and random environmental events 
(e.g., landslides, flooding, and hurricanes). This final rule 
implements the Federal protection provisions provided by the Act for 
these 10 plant taxa. Listing under the Act also triggers protection for 
these taxa under State Law.

EFFECTIVE DATE: This rule takes effect October 4, 1999.

ADDRESSES: The complete file for this rule is available for inspection, 
by appointment, during normal business hours at the U.S. Fish and 
Wildlife Service, Pacific Islands Ecoregion, Pacific Islands Fish and 
Wildlife Office, 300 Ala Moana Boulevard, Room 3-122, Box 50088, 
Honolulu, Hawaii 96850.

FOR FURTHER INFORMATION CONTACT: Karen Rosa, Assistant Field 
Supervisor--Endangered Species, Pacific Islands Ecoregion at the above 
address (telephone 808/541-3441; facsimile 808/541-3470).

SUPPLEMENTARY INFORMATION:

Background

    Clermontia samuelii, Cyanea copelandii ssp. haleakalaensis, Cyanea 
glabra, Cyanea hamatiflora ssp. hamatiflora, Dubautia plantaginea ssp. 
humilis, Hedyotis schlechtendahliana var. remyi, Kanaloa kahoolawensis, 
Labordia tinifolia var. lanaiensis, Labordia triflora, and Melicope 
munroi are, or were, known from four Hawaiian Islands--Molokai, Lanai, 
Maui, and Kahoolawe. The current and historical distribution by island 
for each of the 10 taxa is presented in Table 1.

                            Table 1. Summary of Island Distribution of the 10 Species
----------------------------------------------------------------------------------------------------------------
                                                              Island within Maui Nui
             Species             -------------------------------------------------------------------------------
                                         Maui               Molokai              Lanai             Kahoolawe
----------------------------------------------------------------------------------------------------------------
Clermontia samuelii.............  Current...........
Cyanea copelandii ssp.            Current...........
 haleakalaensis.
Cyanea glabra...................  Current...........
Cyanea hamatiflora ssp.           Current...........
 hamatiflora.
Dubautia plantaginea ssp.         Current...........
 humilis.
Hedyotis schlechtendahliana ssp.  ..................  ..................  Current...........
 remyi.
Kanaloa kahoolawensis...........  ..................  ..................  ..................  Current.*
Labordia tinifolia var.           ..................  ..................  Current...........
 lanaiensis.
Labordia triflora...............  ..................  Current...........
Melicope munroi.................  ..................  Historical........  Current ..........
----------------------------------------------------------------------------------------------------------------
KEY
Current--population last observed within the past 20 years.
Historical--population not seen for more than 20 years.
* Kanaloa kahoolawensis was most likely a dominant species in the lowland areas of Oahu, and possibly Maui, up
  until 800 years ago, according to pollen records.

    The Hawaiian archipelago includes eight large volcanic islands 
(Niihau, Kauai, Oahu, Molokai, Lanai, Kahoolawe, Maui, and Hawaii), as 
well as offshore islets, shoals, and atolls set on submerged volcanic 
remnants at the northwest end of the chain. The archipelago covers a 
land area of about 16,600 square kilometers (sq km) (6,400 sq miles (sq 
mi)), extending roughly between latitude 18 deg.50' to 28 deg.15' N and 
longitude 154 deg.40' to 178 deg.70' W, and ranging in elevation from 
sea level to 4,200 meters (m) (13,800 feet (ft)) (Department of 
Geography 1983). The four main central islands of Maui, Molokai, Lanai, 
and Kahoolawe are part of a large volcanic mass of six major volcanoes 
that during times of lower sea level were united as a single island, 
which was named Maui Nui and covered about 5,200 sq km (2,000 sq mi).
    The climate of the Hawaiian Islands reflects the tropical setting 
buffered by the surrounding ocean (Department of Geography 1983). The 
prevailing winds are northeast trades with some seasonal fluctuation in 
strength. There are also winter storm systems and occasional 
hurricanes. Temperatures vary over the year an average of 5 deg. 
Celsius (C) (11 deg. Fahrenheit (F)) or less, with daily variation 
usually exceeding seasonal variation in temperature. Temperature varies 
with elevation and ranges from a maximum recorded temperature of 37.7 
deg.C (99.9  deg.F), measured at 265 m (870 ft) elevation, to a minimum 
of -12.7  deg.C (9.1  deg.F) recorded at 4,205 m (13,795 ft) elevation. 
Annual rainfall varies greatly by location, with marked windward to 
leeward gradients over short distances. Minimum average annual rainfall 
is less than 250 millimeters (mm) (10 inches (in.)); the maximum 
average precipitation is greater than 11,000 mm (450 in.) per year. 
Precipitation is greatest during the months of October through April. A 
dry season is apparent in leeward settings, while windward settings 
generally receive tradewind-driven rainfall throughout the year 
(Department of Geography 1983).
    The native-dominated vegetation of the Hawaiian Islands varies 
greatly according to elevation, moisture regime, and substrate. The 
most recent classification of Hawaiian natural communities recognizes 
nearly 100 native vegetation types. Within these types are numerous 
island-specific or region-specific associations, comprising an 
extremely rich array of vegetation types within a very limited 
geographic area. Major vegetation formations include forests, 
woodlands, shrublands, grasslands, herblands, and pioneer associations 
on lava and cinder substrates (Gagne and Cuddihy 1990).
    In Hawaii, lowland, montane, and subalpine forest types extend from 
sea level to above 3,000 m (9,800 ft) in elevation. Coastal and lowland 
forests are generally dry or mesic and may be open or closed-canopied. 
The stature of lowland forests is generally under 10 m (30 ft). Three 
of the taxa in this final rule (Cyanea copelandii ssp. haleakalaensis, 
Labordia tinifolia var. lanaiensis, and Labordia triflora) have been 
reported from lowland mesic forest habitat. Montane wet forests, 
occupying elevations between 915 and 1,830 m

[[Page 48309]]

(3,000 and 6,000 ft), occur on the windward slopes and summits of the 
islands of Kauai, Oahu, Molokai, Maui, and Hawaii. The forests may be 
open- to closed-canopied, and may exceed 20 m (65 ft) in stature. 
Several species of native trees and tree ferns usually dominate montane 
wet forests. Four of the taxa in this final rule (Clermontia samuelii, 
Cyanea copelandii ssp. haleakalaensis, Cyanea glabra, and Cyanea 
hamatiflora ssp. hamatiflora) have been reported from montane wet 
forest habitat.
    Hawaiian shrublands are also found from coastal to alpine 
elevations. The majority of Hawaiian shrubland types are in dry and 
mesic settings, or on cliffs and slopes too steep to support trees. One 
taxon in this final rule, Kanaloa kahoolawensis, has been reported from 
coastal dry shrubland on Kahoolawe. Two taxa in this final rule, 
Dubautia plantaginea ssp. humilis and Melicope munroi, have been 
reported from lowland wet shrublands, and Hedyotis schlechtendahliana 
var. remyi has been reported from lowland mesic shrublands.
    The land that supports these 10 plant taxa is owned by various 
private parties, the State of Hawaii (including forest reserves and 
natural area reserves), and the Federal government (Department of the 
Interior, National Park Service (NPS)).

Discussion of the 10 Plant Taxa

Clermontia samuelii C. Forbes
    Clermontia samuelii, was first described by C.N. Forbes from a 
collection he made in 1919 (Degener and Degener 1958, Forbes 1920). 
Harold St. John described C. hanaensis in 1939, based on a specimen 
collected by C.N. Forbes in 1920 (Degener and Degener 1960, St. John 
1939). Later, St. John formally described C. gracilis, C. 
kipahuluensis, and C. rosacea (St. John 1987a). In the most recent 
treatment of this endemic Hawaiian genus, Lammers considers all four 
species to be synonymous with C. samuelii, and divides the species into 
two subspecies--ssp. hanaensis (including the synonyms C. hanaensis and 
C. kipahuluensis) and ssp. samuelii (including C. gracilis and C. 
rosacea) (Lammers 1988, 1990).
    Clermontia samuelii, a member of the bellflower family 
(Campanulaceae), is a terrestrial shrub 1.2 to 5 m (4 to 16 ft) tall. 
The leaves are elliptical, sometimes broader at the tip, with blades 5 
to 10 centimeters (cm) (2 to 4 in.) long and 1.8 to 4.5 cm (0.7 to 1.8 
in.) wide. The upper surfaces of the leaves are dark green, often 
tinged purplish, and may be sparsely hairy. The lower surfaces of the 
leaves are pale green, and sparsely to densely hairy. The leaf margins 
are thickened, with shallow, ascending, rounded teeth. The tips and 
bases of the leaves are typically sharply pointed. The inflorescences 
(flowering clusters) bear two to five flowers on a main stem that is 4 
to 18 mm (0.2 to 0.7 in.) long. The stalk of each individual flower is 
12 to 28 mm (0.5 to 1.1 in.) long. The hypanthium (cup-like structure 
at the base of the flower) is widest on the top, 8 to 14 mm (0.3 to 0.6 
in.) long, and 5 to 10 mm (0.2 to 0.4 in.) wide. The sepals and petals 
are similar in color (rose or greenish white to white), curved, and 
tubular. The flowers are 36 to 55 mm (1.4 to 2.2 in.) long and 5 to 10 
mm (0.2 to 0.4 in.) wide. The lobes of the sepals and petals are erect, 
and extend 0.2 to 0.5 times beyond the tube. Berries of this species 
have not yet been observed. C. samuelii ssp. hanaensis is 
differentiated from C. samuelii ssp. samuelii by the greenish white to 
white flowers; longer, narrower leaves with the broadest point near the 
base of the leaves; and fewer hairs on the lower surface of the leaves. 
The species is separated from other members of this endemic Hawaiian 
genus by the size of the flowers and the hypanthium (Lammers 1990).
    Historically, Clermontia samuelii has been reported from eight 
locations on Haleakala, East Maui, from Keanae Valley on the windward 
(northeastern) side to Manawainui on the more leeward (southeastern) 
side of Haleakala (Hawaii Heritage Program (HHP) 1991a1 to 1991a4, 
1991b1 to 1991b4; Medeiros and Loope 1989). Currently, Clermontia 
samuelii ssp. hanaensis is known from several populations limited to 
the northeastern side of Haleakala, totaling fewer than 300 
individuals. The populations occur on State owned land, within a 
Natural Area Reserve and a Forest Reserve (FR) (Arthur C. Medeiros, 
Biological Resources Division, U.S. Geological Survey (BRD), pers. 
comm. 1995). Clermontia samuelii ssp. samuelii is known from 5 to 10 
populations totaling 50 to 100 individuals. Most of the populations 
occur on the back walls of Kipahulu Valley, within Haleakala National 
Park, with two or three of the populations on adjacent State owned land 
(Robert Hobdy, Hawaii Division of Forestry and Wildlife (DOFAW) and 
A.C. Medeiros, pers. comms. 1995). Clermontia samuelii ssp. hanaensis 
is found at, or below, 915 m (3,000 ft) elevation (A.C. Medeiros, pers. 
comm. 1995), while Clermontia samuelii ssp. samuelii is typically found 
between 1,800 to 2,100 m (6,000 to 6,900 ft) elevation (HHP 1991b1, 
1991b2, 1991b4). Both taxa are found in montane wet forest dominated by 
Metrosideros polymorpha ('ohi'a) with an understory of Cibotium sp. 
(hapu u') and various native shrubs. Associated plant taxa include 
Dubautia sp. (na'ena'e), Clermontia sp. ('oha wai), Hedyotis sp. 
(pilo), Vaccinium sp. (ohelo), Carex alligata, Melicope sp. (alani), 
and Cheirodendron trigynum ('olapa) (HHP 1991a1, 1991a2, 1991b4).
    Threats to Clermontia samuelii ssp. hanaensis include habitat 
degradation and/or destruction by feral pigs (Sus scrofa) and 
competition with alien plant taxa such as Tibouchina herbacea 
(glorybush) and two species of Hedychium (ginger) (A.C. Medeiros, pers. 
comm. 1995; Fredrick R. Warshauer, BRD, pers. comm. 1995). In addition, 
two extremely invasive alien plant taxa, Miconia calvescens (velvet 
tree) and Clidemia hirta (Koster's curse), are found in nearby areas 
and may invade this habitat if not controlled (A.C. Medeiros, pers. 
comm. 1995). The habitat of Clermontia samuelii ssp. samuelii was 
extensively damaged by pigs in the past, and pigs are still a major 
threat to the populations on State owned lands. The populations of 
Clermontia samuelii ssp. samuelii within the park have been fenced and 
pigs have been eradicated. Due to the large populations of pigs in 
adjacent areas, the park populations must constantly be monitored to 
prevent further ingress (R. Hobdy and A.C. Medeiros, pers. comms. 
1995). Rats (mainly the black rat (Rattus rattus)) and slugs (mainly 
Milax gagetes) are known to eat leaves, stems, and fruits of other 
members of this genus, and therefore are a potential threat to both 
subspecies (Loyal Mehrhoff, Service, in litt. 1995).
Cyanea copelandii Rock ssp. haleakalaensis (St. John) Lammers
    Cyanea haleakalaensis was first described in 1971 by St. John, from 
a collection made by G.Y. Kikudome in 1951 (St. John 1971). In 1987, 
St. John (St. John 1987b) merged the two genera Cyanea and Delissea, 
formally recognizing only Delissea, the genus with priority. This 
resulted in the combination D. haleakalaensis. Lammers retains both 
genera in the currently accepted treatment of the Hawaiian members of 
the family, and in 1988 he recognized C. haleakalaensis as a subspecies 
of C. copelandii, publishing the new combination C. copelandii ssp. 
haleakalaensis (Lammers 1988, 1990). Cyanea copelandii ssp. copelandii 
was previously listed as an endangered species (59 FR 10305).

[[Page 48310]]

    Cyanea copelandii ssp. haleakalaensis, a member of the bellflower 
family, is a vine-like shrub 0.3 to 2 m (1 to 7 ft) tall, with 
sprawling stems. The sap of this species is a tan latex. Stems are 
unbranched or sparingly branched from the base. The leaves are 
elliptical, 10 to 19 cm (4 to 7 in.) long, and 3.5 to 8.5 cm (1.4 to 
3.3 in.) wide. The upper surfaces of the leaves have no hairs, while 
the lower surfaces are hairy. The margins of the leaves are thickened, 
with small, widely spaced, sharp teeth. The leaf stalks are 2.5 to 10 
cm (1 to 4 in.) long. The inflorescences are 5 to 12-flowered and 
hairy. The main inflorescence stalks are 20 to 45 mm (0.8 to 1.8 in.) 
long. The hypanthium is oval and widest at the top, 6 to 10 mm (0.2 to 
0.4 in.) long, about 5 mm (0.2 in.) wide, and hairy. The corolla 
(petals collectively) is yellowish but appears pale rose in color due 
to a covering of dark red hairs. The corolla is 37 to 42 mm (1.4 to 1.6 
in.) long and about 5 mm (0.2 in.) wide. The corolla tube is gently 
curved and the lobes spread about 0.25 times beyond the tube. The 
berries are dark orange, oval, and 7 to 15 mm (0.3 to 0.6 in.) long. 
This subspecies is differentiated from the other subspecies by the 
elliptical leaves, which are also shorter. This species differs from 
others in this endemic Hawaiian genus by the vine-like stems and the 
yellowish flowers that appear red due to the covering of hairs (Lammers 
1990).
    Cyanea copelandii ssp. haleakalaensis was historically reported 
from six locations on the windward (northeastern) side of Haleakala, 
East Maui, from Waikamoi to Kipahulu Valley (Chock and Kikudome (299) 
1950; Forbes (1680.M) 1919, (1708.M) 1919, (2616.M) 1920, (2675.M) 
1920; Hobdy (887) 1980; Kikudome (454) 1951; Lamoureux and DeWreede 
(3917) 1967; Rock (25660b) 1954; St. John (24732) 1950; Warshauer and 
Kepler (FRW 2698) 1980; Warshauer and McEldowney (FRW 2769) 1980; 
Wagner et al. (5912) 1988). Currently, this taxon is known from two 
populations--one population of about 200 individuals in Kipahulu Valley 
within Haleakala National Park, and one population of 35 individuals on 
lower Waikamoi flume, which is privately owned. Typical habitat is 
stream banks and wet scree slopes in montane wet or mesic forest 
dominated by Acacia koa (koa) and/or Metrosideros polymorpha (Hobdy 
(887) 1980; Medeiros and Loope 1989; National Tropical Botanical Garden 
(NTBG) 1994; Wagner et al. (5912) 1988; R. Hobdy and A.C. Medeiros, 
pers. comms. 1995). Cyanea copelandii ssp. haleakalaensis is found at 
elevations between 730 and 1,340 m (2,400 and 4,400 ft) (Hobdy (887) 
1980; Wagner et al. (5912) 1988; Warshauer and Kepler (FRW 2698) 1980; 
Warshauer and McEldowney (FRW 2769) 1980; A.C. Medeiros, pers. comm. 
1995). Associated species include Perrottetia sandwicensis (olomea), 
Psychotria hawaiiensis (kopiko ula), Broussaisia arguta (kanawao), and 
Hedyotis acuminata (au) (Wagner et al. (5912) 1988).
    The major threats to Cyanea copelandii ssp. haleakalaensis are 
habitat degradation and/or destruction by feral pigs and competition 
with several alien plant taxa (Higashino et al. 1988; Hobdy (887) 1980; 
NTBG 1994; R. Hobdy, A.C. Medeiros, and F.R. Warshauer, pers. comms. 
1995). Rats (mainly the black rat) and slugs (mainly Milax gagetes) are 
known to eat leaves, stems, and fruits of other members of this genus, 
and therefore are a potential threat to this species (L. Mehrhoff, in 
litt. 1995). In addition, C. copelandii ssp. haleakalaensis is 
threatened by random environmental events since it is known from only 
two populations.
Cyanea glabra (F. Wimmer) St. John
    Cyanea glabra was first collected on West Maui by Willam Hillebrand 
who named it Cyanea holophylla var. obovata (Hillebrand 1888). In 1943, 
F.E. Wimmer named it C. knudsenii var. glabra, based on a specimen 
collected by Forbes on East Maui (Wimmer 1943). In 1981, St. John 
elevated C. knudsenii var. glabra to full species status as C. glabra 
(St. John 1981). Lammers, in the most recent treatment of the Hawaiian 
members of the family, upheld the species name, and included C. 
holophylla var. obovata as well as the following synonyms in C. glabra, 
including C. scabra var. variabilis, Delissea glabra, D. holophylla 
var. obovata, and D. scabra var. variabilis (Lammers 1990, Rock 1919).
    Cyanea glabra, a member of the bellflower family, is a branched 
shrub. The leaves of juvenile plants are deeply pinnately lobed, while 
those of the adult plants are more or less entire and elliptical. Adult 
leaves are 23 to 36 cm (9 to 14 in.) long and 7 to 12 cm (3 to 5 in.) 
wide. The upper surfaces of the leaves are green and hairless, while 
the lower surfaces are pale green and hairless to sparsely hairy. The 
margins of the adult leaves are thickened and shallowly toothed to 
irregularly lobed. Six to eight flowers are borne in each 
inflorescence. The main inflorescence stalk is 20 to 55 mm (0.8 to 2.2 
in.) long, while the individual flower stalk is 12 to 25 mm (0.5 to 1.0 
in.) long. The hypanthium is widest at the top, 7 to 10 mm (0.3 to 0.4 
in.) long, and about 5 mm (0.2 in.) wide. The corolla is white, often 
with a pale lilac tinge, 50 to 60 mm (2 to 2.4 in.) long, and about 8 
mm (0.3 in.) wide. The tube of the corolla is curved. The lobes are 
spreading, 0.25 to 0.33 times as long as the tube, and are covered by 
small, sharp projections. The berries are yellowish orange, elliptical, 
and 10 to 15 mm (0.4 to 0.6 in.) long. The calyx (sepals collectively) 
persist on the berry. This species is differentiated from others in 
this endemic Hawaiian genus by the size of the flower and the pinnately 
lobed juvenile leaves (Lammers 1990).
    Cyanea glabra has been reported historically from two locations on 
West Maui (Hillebrand 1888; Steve Perlman, NTBG, pers. comm. 1992) and 
five locations on Haleakala, East Maui (HHP 1991c1 to 1991c5). This 
species is currently known from only two populations--one population of 
12 individuals in Kauaula Gulch on West Maui on privately owned land 
(S. Perlman, pers. comm. 1995), and one scattered population of 
approximately 200 individuals in Kipahulu Valley, within Haleakala 
National Park (A.C. Medeiros, pers. comm. 1995). Typical habitat is wet 
forest dominated by Acacia koa and/or Metrosideros polymorpha, at 
elevations between 975 to 1,340 m (3,200 to 4,400 ft) (A.C. Medeiros, 
pers. comm. 1995).
    The primary threat to Cyanea glabra is slugs (A.C. Medeiros, pers. 
comm. 1995). Additional threats are habitat degradation and/or 
destruction by feral pigs, flooding, and competition with several alien 
plant taxa (R. Hobdy and A.C. Medeiros, pers. comms. 1995). Rats are a 
potential threat to C. glabra, since they are known to eat plant parts 
of other members of the bellflower family (L. Mehrhoff, in litt. 1995; 
A.C. Medeiros, pers. comm. 1995). Leaf damage in the form of stippling 
and yellowing by the two spotted leafhopper (Saphonia rufofascia) has 
been observed on other native species within the area of C. glabra on 
West Maui and is a potential threat to this species (Kenneth Wood, 
NTBG, pers. comm. 1995). Random environmental events are a threat to 
this species, with only two populations remaining.
Cyanea hamatiflora Rock ssp. hamatiflora
    Cyanea hamatiflora was first collected by Joseph Rock in 1910 and 
described in 1913 (Rock 1913). In 1987, St. John (St. John 1987b) 
merged the two genera Cyanea and Delissea, formally recognizing only 
Delissea, the genus with priority. This resulted in the

[[Page 48311]]

combination D. hamatiflora. In 1988, Lammers upheld Cyanea as a 
separate genus and combined C. carlsonii with this species, resulting 
in two subspecies: The federally endangered C. hamatiflora ssp. 
carlsonii (59 FR 10305) and the nominative C. hamatiflora ssp. 
hamatiflora (Lammers 1988, 1990).
    Cyanea hamatiflora ssp. hamatiflora, a member of the bellflower 
family, is a palm-like tree 3 to 8 m (10 to 26 ft) tall. The latex is 
tan in color. The leaves are elliptical with the broadest point at the 
tip, or they may be narrowly oblong. The leaf blades are 50 to 80 cm 
(20 to 30 in.) long, 8 to 14 cm (3 to 5.5 in.) wide, and have no stem. 
The upper surface of the leaf is sparsely hairy to hairless and the 
lower surface is hairy at least along the midrib and veins. The leaf 
margins are minutely round-toothed. The inflorescence is 5 to 10 
flowered with main stalks 15 to 30 mm (0.6 to 1.2 in.) long. The stalks 
of individuals flowers are 5 to 12 mm (0.2 to 0.5 in.) long. The 
hypanthium is widest at the top, 12 to 30 mm (0.5 to 1.2 in.) long, and 
6 to 12 mm (0.2 to 0.5 in.) wide. The corolla is magenta in color, 60 
to 80 mm (2 to 3 in.) long, 6 to 11 mm (0.2 to 0.4 in.) wide, and 
hairless. The tube of the corolla is slightly curved, with lobes 0.25 
to 0.5 times as long as the tube. The corolla lobes all curve downward, 
making the flower appear one-lipped. The anthers (pollen-bearing 
structures) are hairless except for the lower two, which have apical 
tufts of white hairs. The fruit is a purplish red berry 30 to 45 mm 
(1.2 to 1.8 in.) long and 20 to 27 mm (0.8 to 1.1 in.) wide. The berry 
is crowned by persistent calyx lobes. This subspecies is differentiated 
from the previously listed subspecies (C. hamatiflora ssp. carlsonii) 
by its longer calyx lobes and shorter individual flower stalks. This 
species is separated from others in this endemic Hawaiian genus by 
fewer flowers per inflorescence and narrower leaves (Lammers 1990).
    Cyanea hamatiflora ssp. hamatiflora was historically known from 
eight locations on the windward (northeastern) side of Haleakala, on 
Maui, stretching from Puu o Kakae to Manawainui (Degener (7977) 1927; 
Forbes (1294.M) 1919, (1654.M) 1919, (2607.M) 1920; Higashino and 
Haratani (10037) 1983; Higashino and Holt (9398) 1980; Higashino and 
Mizuro (2850) 1976; Hobdy (2630) 1986; Rock (8514) 1918; St. John 
(24730) 1951; Skottsberg (870) 1920; Warshauer and McEldowney (FRW 
2614) 1980; Warshauer and McEldowney (FRW 2876) 1980). Currently, this 
taxon is known from two locations. Five or 6 populations totaling 50 to 
100 individuals in Kipahulu Valley occur within Haleakala National Park 
(A.C. Medeiros, pers. comm. 1995), and 5 or 6 populations totalling 20 
to 25 widely scattered individuals occur in the Waikamoi-Koolau Gap 
area on privately owned land (NTBG 1995; R. Hobdy, pers. comm. 1995). 
Typical habitat for this taxon is montane wet forest dominated by 
Metrosideros polymorpha, with a Cibotium sp. and/or native shrub 
understory, from 975 to 1,500 m (3,200 to 4,920 ft) elevation (NTBG 
1995; Warshauer and McEldowney (FRW 2614) 1980; Warshauer and 
McEldowney (FRW 2876) 1980). Associated native plant taxa include 
Dicranopteris linearis (uluhe), Cheirodendron trigynum, Broussaisia 
arguta, Cyanea solenocalyx (haha), Cyanea kunthiana (haha), Vaccinium 
sp. (`ohelo), Melicope sp., and Myrsine sp. (kolea) (Higashino and 
Mizuro (2850) 1976; NTBG 1995).
    The major threats to Cyanea hamatiflora ssp. hamatiflora are 
habitat degradation and/or destruction by feral pigs, landslides, and 
competition with the alien plant Ageratina adenophora (Maui pamakani) 
(NTBG 1995; R. Hobdy and A.C. Medeiros, pers. comms. 1995). Pig damage 
in the form of peeled bark has been observed on individuals of C. 
hamatiflora ssp. hamatiflora (A.C. Medeiros, pers. comm. 1995). Rats 
and slugs are potential threats, since other Hawaiian members of this 
family are known to be eaten by rats and slugs (L. Mehrhoff, in litt. 
1995). All populations of this taxon are in areas where rats and slugs 
have been observed (A.C. Medeiros, pers. comm. 1995).
Dubautia plantaginea Gaud. ssp. humilis G. Carr
    Dubautia plantaginea ssp. humilis was first described in 1985, from 
specimens collected by Gerald Carr, Robert Robichaux, and Rene Sylva in 
Black Gorge on West Maui (Carr 1985, 1990).
    Dubautia plantaginea ssp. humilis, a member of the aster family 
(Asteraceae), is a dwarfed shrub less than 80 cm (30 in.) tall. The 
stems are hairless or occasionally strigullose (having straight hairs 
pressed against the stem). The leaves are opposite, narrow, 8 to 15 cm 
(3 to 6 in.) long, and 0.7 to 4.5 cm (0.3 to 1.8 in.) wide. The leaves 
usually have five to nine nerves, and are hairless or moderately 
strigullose. The leaf margins are toothed from the apex to near the 
middle. Between 20 to 90 flowering heads are found in each 
inflorescence, which is about 20 cm (8 in.) long and 28 cm (11 in.) 
wide. Eight to 20 florets (small flower that is part of a dense 
cluster) are found in each head, borne on a flat receptacle. The bracts 
on the receptacle are about 5 mm (0.2 in.) long, sharply toothed, and 
fused together. The corolla is yellow, and may purple with age. The 
fruit is an achene (a dry, one-celled, indehiscent fruit) 2.5 to 4 mm 
(0.08 to 0.2 in.) long. The taxon is self-incompatible, meaning flowers 
must be pollinated by pollen from a different plant. This subspecies 
differs from the other two subspecies (D. plantaginea ssp. magnifolia 
and D. plantaginea ssp. plantaginea) by having fewer heads per 
inflorescence but more florets per head. The species differs from other 
Hawaiian members of the genus by the number of nerves in the leaves and 
by the close resemblance of the leaves to the genus Plantago (Carr 
1985, 1990).
    Dubautia plantaginea ssp. humilis has only been reported from two 
locations in Iao Valley, on West Maui. Both populations are on 
privately owned land, and the two populations total fewer than 300 
individuals. Typical habitat is wet, barren, wind-blown cliffs, between 
350 to 400 m (1,150 to 1,300 ft) elevation. Associated native plant 
taxa include Metrosideros polymorpha, Pipturus albidus (mamaki), 
Eragrostis variabilis (kawelu), Carex sp., Hedyotis formosa, Lysimachia 
remyi, Bidens sp. (kookoolau), Pritchardia sp. (loulu), and the 
federally endangered Plantago princeps (ale) (Hawaii Plant Conservation 
Center (HPCC) 1990; HHP 1991d1, 1991d2; R. Hobdy, pers. comm. 1995).
    Threats to Dubautia plantaginea ssp. humilis include landslides and 
several alien plant taxa (HPCC 1990; HHP 1991d1; R. Hobdy, pers. comm. 
1995). Random environmental events are also a threat, with only two 
known populations less than a half mile apart within the same valley.
Hedyotis schlechtendahliana Steud. var. remyi (Hillebr.) Fosb.
    Hillebrand described a new species, Kadua remyi, based on 
collections on Lanai and East Maui by Reverend John Lydgate (Hillebrand 
1888). F. Raymond Fosberg combined the genus Kadua with Hedyotis in 
1943, and combined K. remyi with Hedyotis schlechtendahliana. Fosberg 
considered the Lanai plants different enough from the Maui plants to 
create a separate variety, H. schlechtendahliana var. remyi. This 
variety has been upheld in the most recent revision of the Hawaiian 
members of this genus (Wagner et al. 1990).
    Hedyotis schlechtendahliana var. remyi, a member of the coffee 
family (Rubiaceae), is a few branched subshrub from 60 to 600 cm (24 to 
240 in.) long, with weakly erect or climbing stems that may be somewhat 
square, smooth, and

[[Page 48312]]

glaucous (with a fine waxy coating that imparts a whitish or bluish hue 
to the stem). The leaves are opposite, glossy, thin or somewhat 
thickened, egg-shaped or with a heart-shaped base and a very pointed 
tip, and 3 to 6 cm (1.2 to 2.4 in.) long. The margins of the leaves 
curl under. The veins of the leaves are impressed on the upper surface 
with hairs along the veins and raised on the lower surface. The lower 
surface of the leaves are usually glaucous, like the stems. The leaf 
stalks are up to 1 cm (0.4 in.) long, slightly fused to the stem, and 
bear stipules (appendages on the base of the leaf stalks). The 
inflorescence stalks are 2 to 15 mm (0.1 to 0.6 in.) long, square, 
usually glaucous, and borne at the ends of the stems. The flowers have 
either functional male and female parts or only functional female 
parts. Leaf-like bracts are found at the base of each flower. The 
hypanthium is top-shaped and 1.5 to 2.2 mm (0.06 to 0.09 in.) wide. The 
calyx lobes are usually leaf-like and oblong to broadly egg-shaped, 2 
to 8 mm (0.08 to 0.3 in.) long, and 1.5 to 2.5 mm (0.08 to 0.09 in.) 
wide, enlarging somewhat in fruit. The corolla is cream-colored, 
fleshy, usually glaucous, trumpet-shaped, with a tube 6 to 17 mm (0.2 
to 0.7 in.) long and lobes 1.5 to 10 mm (0.06 to 0.4 in.) long when the 
anthers are ripe. The stamens reach only to 1 to 3 mm (0.04 to 0.1 in.) 
below the sinuses of the corolla lobes. The styles are woolly on the 
lower portions, and two to four lobed. The fruits are top-shaped to 
sub-globose capsules 2 to 4 mm (0.1 to 0.2 in.) long and 3 to 7 mm (0.1 
to 0.3 in.) in diameter. The fruits break open along the walls of the 
cells within the fruit. Seeds are dark brown, irregularly wedge-shaped 
and angled, and darkly granular. This variety is distinguished from the 
other variety by the leaf shape, narrow flowering stalks, and flower 
color. It is distinguished from others in the genus by the distance 
between leaves and the length of the sprawling or climbing stems 
(Wagner et al. 1990).
    Historically, Hedyotis schlechtendahliana var. remyi was known from 
five locations on the northwestern portion of Lanaihale on the island 
of Lanai (Degener et al. (24193) 1957; Forbes (33.L) 1913, (315.L) 
1917); Fosberg (12463) 1939; HHP 1991e1 to 1991e3; Hillebrand 1888; 
Hillebrand and Lydgate (s.n.) n.d.; Munro (s.n.) 1913, (s.n.) 1914, 
(257, 335) 1928, (506) 1930; Nagata and Ganders (2524) 1982; Rock 
(8116) 1910; St. John and Eames (18738) 1938; Wagner et al. 1990). 
Currently, this species is known from six individuals in three 
populations on Kaiholeha-Hulupoe ridge, Kapohaku drainage, and Waiapaa 
drainage on Lanaihale (HHP 1991e1 to 1991e3; R. Hobdy, pers. comm. 
1995). Hedyotis schlechtendahliana var. remyi typically grows in mesic 
windswept shrubland with a mixture of dominant plant taxa that may 
include Metrosideros polymorpha, Dicranopteris linearis, and/or 
Styphelia tameiameiae (pukiawe) at elevations between 730 and 900 m 
(2,400 to 3,000 ft). Associated plant taxa include Dodonaea viscosa 
(aaliI), Sadleria sp. (amau), Dubautia sp. (naenae), Myrsine sp., and 
several others (HHP 1991e1 to 1991e3; Lau (2866) 1986; Nagata and 
Ganders (2524) 1982).
    The primary threats to Hedyotis schlechtendahliana var. remyi are 
habitat degradation and/or destruction by axis deer (Axis axis); 
competition with alien plant taxa such as Psidium cattleianum, Myrica 
faya (firetree), Leptospermum scoparium (New Zealand tea), and Schinus 
terebinthifolius (Christmas berry); and random environmental events 
and/or reduced reproductive vigor due to the small number of remaining 
individuals and populations (HHP 1994e1 to 1991e3; Joel Lau, The Nature 
Conservancy of Hawaii, pers. comm. 1995).
Kanaloa kahoolawensis Lorence and K.R. Wood
    Kanaloa kahoolawensis was previously unknown to science until its 
discovery by Steve Perlman and Ken Wood in 1992 on a steep rocky spire 
on the coast of Kahoolawe. David Lorence and Wood have determined that 
this plant represents a new genus, and have named the species Kanaloa 
kahoolawensis (Lorence and Wood 1994).
    Kanaloa kahoolawensis, a member of the legume family (Fabaceae), is 
a densely branched shrub 0.75 to 1 m (2.5 to 3.5 ft) tall. The branches 
are sprawling and 0.75 to 1.5 m (2.5 to 5 ft) long. New growth is 
densely covered with brown and white hairs. The twigs are brown, ribbed 
or angled, and become whitish gray with corky fissures. The leaves are 
clustered near twig tips and have two persistent stipules. The leaf 
stalk is 6 to 24 mm (0.2 to 0.9 in.) long. The leaves are divided into 
three pairs of leaflets, with a leaf nectary (nectar-bearing gland) at 
the joint between each pair of leaflets. The leaflet pairs are 22 to 55 
mm (0.8 to 2 in.) long. The main stalk of the leaf terminates in a 
short, brown appendage. The leaflets are egg-shaped, unequal-sided, 1.4 
to 4.2 cm (0.6 to 1.7 in.) long, and 0.9 to 3.2 cm (0.4 to 1.3 in.) 
wide. One to three inflorescences are found in the leaf axils (joint 
between leaf and stem), developing with the flush of new leaves. The 
main stalk of the inflorescence is 8 to 30 mm (0.3 to 1.2 in.) long. 
The inflorescence is a globose head 6 to 8 mm (0.3 to 0.3 in.) in 
diameter, with small bracts 1 to 1.5 mm (0.04 to 0.06 in.) long at the 
base. Each inflorescence has 20 to 54 white flowers. The calyx of the 
male flowers has limbs that are wider at the tip; densely covered with 
long, white hairs; and have lobes that overlap when the flower is in 
bud. The corolla lobes also overlap when the flower is in bud, and the 
petals are 1.5 to 1.8 mm (0.06 to 0.07 in.) long. The petals are hairy 
on the outside at the tip, and are not fused at the base. Ten stamens 
are found in the male flowers, fused at the base. Male flowers have 
only vestigial female parts. Female flowers have not been observed. The 
fruit is borne on a stalk about 5 mm (0.2 in.) long. Up to four fruit 
develop in each flowering head. The fruit is egg-shaped to subcircular, 
compressed, hairy at the base, and open along two sides. One slender, 
brown seed, about 2 mm (0.08 in.) long, is found in each fruit. There 
is no other species of legume in Hawaii that bears any resemblance to 
this species or genus (Lorence and Wood 1994).
    The only known location of Kanaloa kahoolawensis is a rocky stack 
on the southern coast of the island of Kahoolawe, which is owned by the 
State of Hawaii (Lorence and Wood 1994). While there are no previous 
records of the plant, pollen core studies on the island of Oahu 
revealed a legume pollen that could not be identified until this 
species was discovered. The pollen cores indicate that K. kahoolawensis 
was a codominant with Dodonaea viscosa and Pritchardia sp. from before 
1210 B.C. to 1565 A.D., at which point K. kahoolawensis disappeared 
from the pollen record and D. viscosa and Pritchardia sp. declined 
dramatically (Athens et al. 1992, Athens and Ward 1993, Lorence and 
Wood 1994). Only two living individuals and 10 to 12 dead individuals 
are known (D. Lorence, NTBG, pers. comm. 1995). The only known habitat 
is mixed coastal shrubland on steep rocky talus slopes at 45 to 60 m 
(150 to 200 ft) elevation. Associated native plant taxa include Sida 
fallax (ilima), Senna gaudichaudii (kolomona), Bidens mauiensis 
(kookoolau), Lipochaeta lavarum (nehe), Portulaca molokinensis (ihi), 
and Capparis sandwichiana (pua pilo). In addition, the area is also a 
nesting site for Bulwer's petrel (Bulweria bulwerii) and wedge-tailed 
shearwater (Puffinus pacificus) (Lorence and Wood 1994).

[[Page 48313]]

    The major threats to Kanaloa kahoolawensis are landslides and the 
alien plant taxa Emelia fosbergii, Chloris barbata (swollen finger 
grass), and Nicotiana glauca (tobacco tree) (Lorence and Wood 1994). 
Goats (Capra hircus) played a major role in the destruction of 
vegetation on Kahoolawe before they were removed (Cuddihy and Stone 
1990), and K. kahoolawensis probably survived only because the rocky 
stack is almost completely separated from the island and inaccessible 
to goats (Lorence and Wood 1994). Rats are a potential threat to this 
species, since it has seeds similar in appearance and presentation to 
the federally endangered Caesalpinia kavaiensis, which is eaten by 
rats. Rats may have been the cause of the decline of this species 800 
years ago (L. Mehrhoff, in litt. 1995). Random environmental events 
and/or reduced reproductive vigor are also a threat to this species, 
because only two individuals are known.
Labordia tinifolia A. Gray var. lanaiensis Sherff
    Hillebrand determined, but did not name, a new variety of Labordia 
tinifolia based on specimens he collected on the islands of Kauai, West 
Maui, Lanai, and Hawaii. E.E. Sherff named the variety L. tinifolia 
var. lanaiensis in 1938 (Sherff 1938). In the revision of the Hawaiian 
members of this family, Wagner et al. (1990), retained the 
nomenclature, but included only those plants from Lanai and Mapulehu on 
Molokai (previously considered L. triflora) as L. tinifolia var. 
lanaiensis. This endemic Hawaiian genus has been revised, and only the 
Lanai populations are included in L. tinifolia var. lanaiensis, while 
L. triflora has been resurrected for the Molokai population (see 
discussion of the next taxon, below) (Motley 1995).
    Labordia tinifolia var. lanaiensis, a member of the logan family 
(Loganiaceae), is an erect shrub or small tree 1.2 to 15 m (4 to 49 ft) 
tall. The stems branch regularly into two forks of nearly equal size. 
The leaves are medium to dark green, oval to narrowly oval, 3.8 to 21 
cm (1.5 to 8.3 in.) long, and 1.4 to 7.3 cm (0.6 to 2.9 in.) wide. The 
leaf stalks are 2.2 to 4 cm (0.9 to 1.6 in.) long. The stipules are 
fused together, forming a sheath around the stem that is 1 to 4 mm 
(0.04 to 0.2 in.) long. Three to 19 flowers are found in each 
inflorescence, and the entire inflorescence is pendulous and has a 
stalk 9 to 22 mm (0.4 to 0.8 in.) long. The flowers are borne on stalks 
8 to 11 mm (0.3 to 0.4 in.) long. The corolla is pale yellowish green 
or greenish yellow, narrowly urn-shaped, and 6.5 to 19 mm (0.2 to 0.7 
in.) long. The fruit is broadly oval, 8 to 17 mm (0.3 to 0.7 in.) long, 
2 to 3 valved, and has a beak 0.5 to 1.5 mm (0.02 to 0.06 in.) long. 
The seeds are brown and about 1.8 mm (0.06 in.) long. This subspecies 
differs from the other two subspecies and other species in this endemic 
Hawaiian genus by having larger capsules and smaller corollas (Motley 
1995; Wagner et al. 1990).
    Labordia tinifolia var. lanaiensis was historically known from the 
entire length of the summit ridge of Lanaihale, on the island of Lanai 
(HHP 1991f1 to 1991f12; Motley 1995; Sherff 1938). Currently, L. 
tinifolia var. lanaiensis is known from only one population at the 
southeastern end of the summit ridge of Lanaihale. This population is 
on privately owned land and totals 300 to 1,000 scattered individuals. 
The typical habitat of L. tinifolia var. lanaiensis is lowland mesic 
forest, associated with such native species as Dicranopteris linearis 
and Scaevola chamissoniana (naupaka kuahiwi), at elevations between 760 
and 915 m (2,500 and 3,000 ft) (HHP 1991f3; Motley 1995; R. Hobdy and 
J. Lau, pers. comms. 1995).
    Labordia tinifolia var. lanaiensis is threatened by axis deer and 
several alien plant taxa (R. Hobdy, pers. comm. 1994; J. Lau, pers. 
comm. 1995). The single population is also threatened by random 
environmental factors.
Labordia triflora Hillebr.
    Hillebrand named Labordia triflora based on a specimen he collected 
on Molokai in the early 1800s (Hillebrand 1888). Wagner et al. 
considered this species to be synonymous with L. tinifolia var. 
lanaiensis (Wagner et al. 1990). Timothy Motley of the University of 
Hawaii (UH) recently revised this endemic Hawaiian genus, and has 
resurrected L. triflora as a valid species (Motley 1995).
    Labordia triflora, a member of the logan family, is very similar to 
L. tinifolia var. lanaiensis, described above, except in the following 
characteristics. Stems of L. triflora are climbing. The leaf stalks are 
only 1 to 3 mm (0.04 to 0.1 in.) long. The inflorescence stalks are 40 
to 50 mm (1.6 to 2 in.) long. Each flower stalk is 10 to 25 mm (0.4 to 
1 in.) long (Motley 1995).
    Until 1990, Labordia triflora was known only from the type 
collection at Mapulehu, on the island of Molokai. This collection was 
made by Hillebrand in 1870 (Motley 1995). In 1990, Joel Lau of The 
Nature Conservancy of Hawaii, rediscovered the species in Kua Gulch on 
Molokai (Motley 1995; J. Lau, pers. comm. 1995). Only 10 individuals 
are known, all occurring on privately owned land (J. Lau, pers. comm. 
1995). Of these individuals, only two are male plants (Timothy Motley, 
University of Hawaii, pers. comm. 1993). This species occurs in mixed 
lowland mesic forest, at an elevation of 800 m (2,600 ft). Associated 
species include Pouteria sandwicensis (alaa), the federally endangered 
Cyanea mannii (haha), and Tetraplasandra sp. (ohe) (Motley 1995).
    The threats to Labordia triflora include habitat degradation and/or 
destruction by pigs and goats, rats that eat seeds, and competition 
with the alien plant species Schinus terebinthifolius (Motley 1995; T. 
Motley, pers. comm. 1993). Random environmental events and reduced 
reproductive vigor also threaten this species, as only 10 individuals 
remain in one population.
Melicope munroi (St. John) B. Stone
    In 1944, St. John described Pelea munroi, based on a collection by 
George C. Munro in 1915 (St. John 1944). The genus Pelea has since been 
submerged with Melicope, creating the combination M. munroi (Hartley 
and Stone 1989).
    Melicope munroi, a member of the citrus family (Rutaceae), is a 
sprawling shrub up to 3 m (10 ft) tall. The new growth of this species 
is minutely hairy. The leaves are opposite, broadly elliptical, 6 to 11 
cm (2.4 to 4.3 in.) long, and 3.5 to 7.5 cm (1.4 to 3.0 in.) wide. The 
veins of the leaf are parallel, in 8 to 12 pairs, and are connected by 
arched veins near the margin of the leaf. The margins of the leaves are 
sometimes rolled under. The leaf stalks are 4 to 12 mm (0.2 to 0.5 in.) 
long. The inflorescence is found in the axil of the leaf and contains 
one to three flowers. The inflorescence stalk is 10 to 15 mm (0.4 to 
0.5 in.) long, and the individual flower stalk is 15 to 35 mm (0.6 to 
1.4 in.) long. Male flowers have not been reported. Female flowers have 
ovoid sepals about 2.5 mm (0.1 in.) long and deltate petals about 8 mm 
(0.3 in.) long. The fruit is about 18 mm (0.7 in.) wide, and the 4 
carpels (egg-bearing structures) are fused about one-third of their 
length. This species differs from other Hawaiian members of the genus 
in the shape of the leaf and the length of the inflorescence stalk 
(Stone et al. 1990).
    Historically known from the Lanaihale summit ridge of Lanai and 
above Kamalo on Molokai, Melicope munroi is currently known from only 
the Lanaihale summit ridge (HHP 1991g1 to 1991g10). The one widely 
scattered population totals an estimated 300 to 500 individuals (J. 
Lau, pers. comm. 1995). Melicope munroi is typically found in lowland 
mat fern shrubland, at elevations of 790 to 1020 m (2,600 to 3,350 ft). 
Associated native

[[Page 48314]]

plant taxa include Diplopterygium pinnatum, Dicranopteris linearis, 
Metrosideros polymorpha, Cheirodendron trigynum, Coprosma sp. (pilo), 
Broussaisia arguta, Melicope sp., and Machaerina angustifolia ('uki) 
(HHP 1991g3 to 1991g10).
    The major threats to Melicope munroi are axis deer and the alien 
plant taxa Leptospermum scoparium and Psidium cattleianum (HHP 1991g3 
to 1991g10; J. Lau, pers. comm. 1995). Random environmental events also 
threaten the one remaining population.

Previous Federal Action

    Federal action on some of these plants began as a result of section 
12 of the Act (16 U.S.C. 1533), which directed the Secretary of the 
Smithsonian Institution to prepare a report on plants considered to be 
endangered or threatened in the United States. This report, designated 
as House Document No. 94-51, was presented to Congress on January 9, 
1975. One of the 10 taxa, Cyanea glabra (as C. scabra var. variabilis), 
was considered to be endangered in that document. One taxon, Labordia 
tinifolia var. lanaiensis, was considered to be threatened and two 
taxa, L. triflora and Melicope munroi (as Pelea munroi), were 
considered to be extinct. On July 1, 1975, we published a notice in the 
Federal Register (40 FR 27823) of our acceptance of the Smithsonian 
report as a petition within the context of section 4(c)(2) (now section 
4(b)(3)) of the Act, and giving notice of our intent to review the 
status of the plant taxa named therein. As a result of that review, on 
June 16, 1976, we published a proposed rule in the Federal Register (41 
FR 24523) to determine endangered status pursuant to section 4 of the 
Act for approximately 1,700 vascular plant species. Two of the 10 taxa, 
Labordia triflora and Melicope munroi, were proposed for endangered 
status in this document. The list of 1,700 plant taxa was assembled on 
the basis of comments and data received by the Smithsonian Institution 
and us in response to House Document No. 94-51 and the July 1, 1975, 
Federal Register publication.
    General comments received in response to the 1976 proposal are 
summarized in an April 26, 1978, Federal Register publication (43 FR 
17909). In 1978, amendments to the Act required that all proposals over 
two years old be withdrawn. A one-year grace period was given to 
proposals already over two years old. On December 10, 1979, we 
published a notice in the Federal Register (44 FR 70796) withdrawing 
the portion of the June 16, 1976, proposal that had not been made 
final, including the proposals to list Labordia triflora and Melicope 
munroi, along with four other proposals that had expired. We published 
an updated notice of review for plants on December 15, 1980 (45 FR 
82479), September 27, 1985 (50 FR 39525), February 21, 1990 (55 FR 
6183), and September 30, 1993 (58 FR 51144). Six of the species in this 
final rule (including synonymous taxa) were at one time or another 
considered category 1 or category 2 candidates for Federal listing. 
Category 1 species were those for which we had on file substantial 
information on biological vulnerability and threats to support 
preparation of listing proposals but for which listing proposals had 
not yet been published because they were precluded by other listing 
activities. Certain species were considered Category 1 but if 
designated by an asterisk (*), were considered possibly extinct. 
Category 2 species were those for which listing as endangered or 
threatened was possibly appropriate, but for which sufficient data on 
biological vulnerability and threats were not currently available to 
support proposed rules. Two taxa, Labordia tinifolia var. lanaiensis 
and L. triflora, were considered category 2 species in the 1980 and 
1985 notices of review. Melicope munroi (as Pelea munroi) was 
considered a category 1* in the 1980 and 1985 notices.
    In the 1990 and 1993 notices, Dubautia plantaginea ssp. humilis, 
Hedyotis schlechtendahliana var. remyi, and Melicope munroi were 
considered category 2 species. Labordia tinifolia var. lanaiensis was 
considered more abundant than previously thought and moved to category 
3C in the 1990 notice. Category 3C species were those that had proven 
to be more abundant or widespread than previously believed and/or were 
not subject to any identifiable threat. Labordia triflora was 
considered a synonym of L. tinifolia var. lanaiensis in the 1990 
notice. As published in the Federal Register (61 FR 7596) on February 
28, 1996, we discontinued the designation of categories for candidate 
species.
    Since the last notice, new information suggests that the numbers 
and distribution are sufficiently restricted and the taxa are 
imminently threatened for the previously designated category 1, 
category 2, and category 3C candidate species mentioned above, as well 
as six additional taxa (Clermontia samuelii, Cyanea copelandii ssp. 
haleakalaensis, Cyanea glabra, Cyanea hamatiflora ssp. hamatiflora, the 
newly discovered Kanaloa kahoolawensis, and the resurrected Labordia 
triflora), to warrant listing. A proposed rule was published on May 15, 
1997, (62 FR 26757) to list these 10 plant taxa as endangered and the 
September 19, 1997 (62 FR 49398), notice of review listed these species 
as proposed for endangered status.
    We now determine 10 taxa from Maui Nui, Hawaii, to be endangered 
with the publication of this final rule.

Summary of Comments and Recommendations

    In the May 15, 1997, proposed rule and associated notifications, we 
requested all interested parties to submit factual reports or 
information that might contribute to the development of a final rule. 
The public comment period ended on July 14, 1997. Appropriate Federal 
and State agencies, county governments, scientific organizations, and 
other interested parties were contacted and requested to comment. A 
newspaper notice inviting public comment was published in the ``Maui 
News'' on May 29, 1997. No comments were received.
    In accordance with our peer review policy (59 FR 34270; July 1, 
1994), we also solicited the expert opinions of three appropriate and 
independent specialists regarding pertinent scientific or commercial 
data and assumptions relating to the taxonomy, population models, and 
supportive biological and ecological information substantive to the 
listing determination for these 10 taxa. The independent specialists 
did not respond to our request.

Summary of Factors Affecting the Species

    After a thorough review and consideration of all available 
information, we have determined that Clermontia samuelii, Cyanea 
copelandii ssp. haleakalaensis, Cyanea glabra, Cyanea hamatiflora ssp. 
hamatiflora, Dubautia plantaginea ssp. humilis, Hedyotis 
schlechtendahliana var. remyi, Kanaloa kahoolawensis, Labordia 
triflora, Melicope munroi, and Labordia tinifolia var. lanaiensis 
should be classified as endangered species. We followed the procedures 
found at section 4(a)(1) of the Act and regulations implementing the 
listing provisions of the Act (50 CFR part 424). A species may be 
determined to be an endangered or threatened species due to one or more 
of the five factors described in section 4(a)(1). These factors and 
their application to Clermontia samuelii ('oha wai), Cyanea copelandii 
ssp. haleakalaensis (haha), Cyanea glabra (haha), Cyanea hamatiflora 
ssp. hamatiflora (haha), Dubautia plantaginea ssp. humilis (na'na'e), 
Hedyotis schlechtendahliana var. remyi (kopa), Kanaloa kahoolawensis 
(kohe

[[Page 48315]]

malama malama o Kanaloa), Labordia tinifolia var. lanaiensis 
(kamakahala), Labordia triflora (kamakahala), and Melicope munroi 
(alani) follow. The primary threats facing the 10 taxa in this final 
rule are summarized in Table 2.

                                                          Table 2.--Summary of Primary Threats
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                            Alien mammals
                   Species                    ----------------------------------------    Alien    Invertebrates   Substrate  Overcollecting    Limited
                                                 Pigs      Goats     Deer      Rats      plants                      loss        vandalism     numbers*
--------------------------------------------------------------------------------------------------------------------------------------------------------
Clermontia samuelii..........................        X   ........  ........        P           X             P    ..........            P
Cyanea copelandii ssp. haleakalaensis........        X   ........  ........        P           P             P    ..........            P             X
Cyanea glabra................................        X   ........  ........        P           X             X            X             P             X
Cyanea hamatiflora ssp. hamatiflora..........        X   ........  ........        P           X             P            X             P
Dubautia plantaginea ssp. humilis............  ........  ........  ........  ........          X   .............          X             P             X
Hedyotis schlechtendahliana var. remyi.......  ........  ........        X   ........          X   .............  ..........            P            X1
Kanaloa kahoolawensis........................  ........  ........  ........        P           X   .............          X             P            X1
Labordia tinifolia var. lanaiensis...........  ........  ........        X   ........          X   .............  ..........            P             X
Labordia triflora............................        X         X   ........        X           X   .............  ..........            P            X1
Melicope munroi..............................  ........  ........        X   ........          X   .............  ..........            P            X
--------------------------------------------------------------------------------------------------------------------------------------------------------
X = Immediate and significant threat.
P = Potential threat.
* = No more than 5 populations; 1= No more than 10 individuals total.

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

    Native vegetation on all of the main Hawaiian Islands has undergone 
extreme alteration because of past and present land management 
practices including ranching, agricultural development, and deliberate 
introductions of alien animals and plants (Cuddihy and Stone 1990, 
Wagner et al. 1985). The primary threats facing the 10 plant taxa 
included in this final rule are ongoing and threatened destruction and 
adverse modification of habitat by feral animals and competition with 
alien plants (see Factor E for discussion about alien plants).
    Eight of the 10 taxa in this rule are variously threatened by feral 
animals (see Table 2). Animals such as pigs, goats, axis deer, and 
cattle were introduced either by the early Hawaiians or more recently 
by European settlers for food and/or commercial ranching activities. 
Over the 200 years following their introduction, their numbers 
increased and the adverse impacts of feral ungulates on native 
vegetation have become increasingly apparent. Beyond the direct effect 
of trampling and grazing native plants, feral ungulates have 
contributed significantly to the heavy erosion still taking place on 
most of the main Hawaiian islands (Cuddihy and Stone 1990).
    Pigs, originally native to Europe, Africa, and Asia, were 
introduced to Hawaii by the Polynesian ancestors of Hawaiians, and 
later by western immigrants. The pigs escaped domestication and invaded 
primarily wet and mesic forests of Kauai, Oahu, Molokai, Maui, and 
Hawaii. Pigs pose an immediate threat to one or more populations of 
five of the taxa in wet and mesic habitats. While foraging, pigs root 
and trample the forest floor, encouraging the establishment of alien 
plants in the newly disturbed soil. Pigs also disseminate alien plant 
seeds through their feces and on their bodies, accelerating the spread 
of alien plants through native forests (Cuddihy and Stone 1990, Stone 
1985). Pigs facilitate the spread of Psidium cattleianum (strawberry 
guava) and Schinus terebinthifolius (Christmas berry), which threaten 
several of the taxa (Cuddihy and Stone 1990, Smith 1985, Stone 1985). 
On Maui, pigs threaten both subspecies of Clermontia samuelii, Cyanea 
copelandii ssp. haleakalaensis, the only known populations of Cyanea 
glabra and Cyanea hamatiflora ssp. hamatiflora, and the only known 
population of Labordia triflora (NTBG 1994; A.C. Medeiros, R. Hobdy, 
and J. Lau, pers. comms. 1995; F.R. Warshauer, pers. comm. 1995).
    Goats, native to the Middle East and India, were first successfully 
introduced to the Hawaiian Islands in 1792. Feral goats now occupy a 
wide variety of habitats from lowland dry forests to montane grasslands 
on Kauai, Oahu, Molokai, Maui, and Hawaii, where they consume native 
vegetation, trample roots and seedlings, accelerate erosion, and 
promote the invasion of alien plants (Scott et al. 1986, Stone 1985, 
van Riper and van Riper 1982). On Molokai, goats threaten the only 
known population of Labordia triflora (T. Motley, pers. comm. 1993).
    In 1920, a group of 12 axis deer was introduced to the island of 
Lanai and about 60 years later the population was estimated at 2,800 
(Tomich 1986). Axis deer degrade habitat by trampling and overgrazing 
vegetation, which removes ground cover and exposes the soil to erosion. 
Extensive red erosional scars caused by decades of deer activity are 
evident on Lanai (Cuddihy and Stone 1990). Activity of axis deer 
threatens all populations of Hedyotis schlechtendahliana var. remyi, 
Labordia tinifolia var. lanaiensis, and Melicope munroi on Lanai (HHP 
1991g8 to 1991g10; J. Lau, pers. comm. 1995).

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

    Unrestricted collecting for scientific or horticultural purposes or 
excessive visits by individuals interested in seeing rare plants is a 
potential threat to any species identified as an imperiled. This is the 
case with all of the taxa in this final rule, but would seriously 
impact the eight taxa whose low numbers and/or few populations make 
them especially vulnerable to disturbances (Cyanea copelandii ssp. 
haleakalaensis, Cyanea glabra, Dubautia plantaginea ssp. humilis, 
Hedyotis schlechtendahliana var. remyi, Kanaloa kahoolawensis, Labordia 
tinifolia var. lanaiensis, Labordia triflora, and Melicope munroi).

C. Disease and Predation

    Disease is not known to be a significant threat to any of the taxa. 
None of the 10 taxa are known to be unpalatable to pigs, deer, or 
goats. Feral pigs not only destroy native vegetation through their 
rooting activities and dispersal of alien plant seeds (see Factor A), 
but they also feed on plants, preferring the pithy interior of large 
tree ferns and fleshy-stemmed plants from the bellflower family (Stone 
1985, Stone and Loope 1987). There is direct evidence of pigs eating 
bark off individuals of Cyanea hamatiflora ssp.

[[Page 48316]]

hamatiflora (A.C. Medeiros, pers. comm. 1995), and predation is a 
possible threat to other members of the bellflower family (Clermontia 
samuelii, Cyanea copelandii ssp. haleakalaensis, and Cyanea glabra). 
Predation is also a possible threat to the one other taxon, Labordia 
triflora, known from areas where pigs have been reported (A.C. Medeiros 
and R. Hobdy, pers. comms. 1995; F.R. Warshauer, pers. comm. 1995).
    Two rat species, the black rat and the Polynesian rat (Rattus 
exulans), and to a lesser extent other introduced rodents, eat large 
fleshy fruits and strip the bark of some native plants, particularly 
fruits of the native plants in the bellflower family (Cuddihy and Stone 
1990, Tomich 1986, Wagner et al. 1985). It is possible that rats eat 
the fruits of Clermontia samuelii, Cyanea copelandii ssp. 
haleakalaensis, Cyanea glabra, and Cyanea hamatiflora ssp. hamatiflora, 
which produce fleshy fruits and stems, and grow in areas where rats 
occur (A.C. Medeiros, pers. comm. 1995; L. Mehrhoff, in litt. 1995). 
Rats also eat the seeds of Labordia triflora (T. Motley, pers. comm. 
1993). Rats are a potential threat to Kanaloa kahoolawensis, which has 
seeds of a type preferred by rats (L. Mehrhoff, in litt. 1995).
    Slugs are widespread in Hawaii and a serious threat to many native 
plant taxa, in addition to possibly being an attractant to pigs 
(Howarth 1985). Slugs feed preferentially on plants with fleshy leaves, 
stems, and fruits, including all taxa in the family Campanulaceae in 
Hawaii (L. Mehrhoff, in litt. 1995). Slugs are the primary threat to 
Cyanea glabra. All recent observations of this species have shown slug 
damage on both juveniles and adults (A.C. Medeiros, pers. comm. 1995). 
Slugs are also a potential threat to the following taxa with fleshy 
tissues, including Clermontia samuelii, Cyanea copelandii ssp. 
haleakalaensis, and Cyanea hamatiflora ssp. hamatiflora (A.C. Medeiros, 
pers. comm. 1995; L. Mehrhoff, in litt. 1995).
    Two spotted leafhopper is a recently introduced insect that feeds 
on leaves, causing physical damage. In addition to mechanical feeding 
damage, this insect may be a vector of a plant virus and is suspected 
of causing severe dieback of the native fern Dicranopteris linearis 
(uluhe), and economic damage to crops and ornamental plants in Hawaii. 
The two spotted leafhopper is a potential threat to all native taxa, 
since it has shown no host preference. It is a particularly grave 
threat to Cyanea glabra, since biologists have observed leafhoppers 
near the West Maui population (Adam Asquith, Service, pers. comm. 1994; 
K. Wood, pers. comm. 1995).

D. The Inadequacy of Existing Regulatory Mechanisms

    Of the 10 taxa in this final rule, 8 have populations located on 
private land, 2 on State land, and 4 on Federal land within Haleakala 
National Park. While four of the taxa occur in more than one of those 
three ownership categories, five are known only from private land, and 
Kanaloa kahoolawensis is found only on State land.
    While four of these taxa are found in Haleakala National Park, 
which is managed to protect native ecosystems, one or more populations 
of each taxa are found on State or private land as well. One of the 
taxa, Clermontia samuelii, also occurs in a State Natural Area Reserve, 
which is managed to perpetuate native resources (HRS, sect. 195-5). 
Furthermore, although Hawaii has a strong State Endangered Species law 
(HRS, sect. 195-D), these plants are currently not protected under that 
law. The other three taxa are found on private lands. However, there 
are no State laws or existing regulatory mechanisms at the present time 
to protect or prevent further decline of these plants on private land, 
except for minimal protection offered to those that occur on land 
classified as a conservation district.
    Sections 2(c) (1) and 7 of the Act direct Federal agencies to seek 
to conserve listed endangered and threatened species and to avoid 
jeopardizing listed species, but require no such activities if the 
plants are not federally listed.
    The majority of the populations of the 10 taxa are located on land 
classified within conservation districts and owned by the State of 
Hawaii or private companies or individuals. Clermontia samuelii occurs 
within Haleakala National Park, and on State Forest Reserve or State 
Natural Area Reserve lands--both are within conservation districts. 
Kanaloa kahoolawensis occurs only on the island of Kahoolawe, which is 
owned by the State of Hawaii. In 1993, Kahoolawe was transferred to 
native Hawaiian control. The Kahoolawe Island Reserve Commission 
(KIRC), which is under the Hawaii Department of Land and Natural 
Resources' Historic Preservation section, was established to oversee 
the cleanup of the island, including the removal of unexploded military 
ordnance and the restoration of native ecosystems and traditional 
cultural uses. Funding for the cleanup was authorized by the U.S. 
Congress, and the U.S. Navy is responsible for performing the cleanup. 
Although it does not lease the island, the Navy controls access to the 
island because of the danger of unexploded ordnance. The island is not 
a State Forest Reserve, Natural Area Reserve, or within a conservation 
district.
    Regardless of the owner, lands in these districts are regarded as 
necessary for the protection of endemic biological resources and the 
maintenance or enhancement of the conservation of natural resources. 
Activities permitted in conservation districts are chosen by 
considering how best to make multiple use of the land (HRS, sect. 205-
2). Some uses, such as maintaining animals for hunting, are based on 
policy decisions, while others, such as preservation of endangered 
species, are mandated by State laws. Requests for amendments to 
district boundaries or variances within existing classifications can be 
made by government agencies and any person with a property interest in 
the land (HRS, sect. 205-4). Before decisions about these requests are 
made, the impact of the final reclassification on ``preservation or 
maintenance of important natural systems or habitat'' (HRS, sects. 205-
4, 205-17), as well as the maintenance of natural resources is required 
to be taken into account (HRS, sects. 205-2, 205-4).
    Hawaii Revised Statutes (chapt. 343) require an environmental 
assessment to determine whether or not the environment will be 
significantly affected before any final land use--(1) occurs on State 
land, or (2) is funded in part or whole by county or State funds, or 
(3) will occur within land classified as conservation district. If it 
is found that an action will have a significant effect, preparation of 
a full Environmental Impact Statement is required. Hawaii's 
Environmental Policy Act, adopted in 1974 to encourage the conservation 
of natural resources and the enhancement of the quality of life, 
requires the safeguarding of ``. . . the State's unique natural 
environmental characteristics . . .'' (HRS, sect. 344-3(1)) and 
includes guidelines to protect endangered species of individual plants 
and animals (HRS, sect. 344-4(3)(A)). However, unless the species are 
protected under the State endangered species law (i.e., State listed as 
endangered or threatened), there is no mechanism to ensure that the 
species will be protected, regardless of what State ``guidelines'' are 
in place. Even though all of these species, except Kanaloa 
kahoolawensis, occur on conservation district lands, the designation of 
a conservation district does not provide adequate protection to these 
species.

[[Page 48317]]

    Federal listing of these 10 plant species will automatically invoke 
State listing under Hawaii's Endangered Species law and supplement the 
protection available under other State laws. The Federal Endangered 
Species Act will, therefore, offer additional protection to these 
species.
    State laws relating to the conservation of biological resources, 
including indigenous aquatic life, wildlife and land plants, and 
endangered species and their associated ecosystems, allow for the 
acquisition of land as well as the development and implementation of 
programs for the conservation, management, and protection of biological 
resources (HRS, sect. 195D-5(a)). However, according to HRS, sect. 
195D-5(d), ``in carrying out programs authorized by this section, 
priority shall be given to the conservation and protection of those 
endangered . . .'', (i.e., Federal and State listed),'' . . . aquatic 
life, wildlife, and land plant species whose extinction within the 
State would imperil or terminate, respectively, their existence in the 
world.'' Therefore, the State will always give priority to protection 
and conservation efforts to species that are federally and State listed 
as endangered or threatened. Without Federal listing, these 10 species 
receive no protection or management by the State.

E. Other Natural or Manmade Factors Affecting Its Continued Existence

    All 10 of the taxa in this final rule are threatened or potentially 
threatened by competition with one or more alien plant taxa (see Table 
2). The most significant of these appear to be Psidium cattleianum 
(strawberry guava), Schinus terebinthifolius (Christmas berry), Rubus 
rosifolius (thimbleberry), Clidemia hirta (Koster's curse), Miconia 
calvescens (velvet tree), Myrica faya (firetree), Paspalum conjugatum 
(Hilo grass), Psidium guajava (common guava), Casuarina equisetifolia 
(ironwood tree), Leptospermum scoparium (New Zealand tea), and 
Ageratina adenophora (Maui pamakani). There are a number of other alien 
plant taxa that pose a significant threat to populations of these 
plants.
    Psidium cattleianum (strawberry guava), an invasive shrub or small 
tree native to tropical America, has become widely naturalized on all 
of the main islands, forming dense stands that exclude other plant 
species in disturbed areas (Cuddihy and Stone 1990). This alien plant 
grows primarily in mesic and wet habitats and is dispersed mainly by 
feral pigs and fruit-eating birds (Smith 1985, Wagner et al. 1990). 
Psidium cattleianum is considered to be one of the greatest alien plant 
threats to Hawaiian rain forests and is a threat on Maui to one of two 
known populations of Cyanea copelandii ssp. haleakalaensis and Cyanea 
glabra (Higashino et al. 1988; A.C. Medeiros, pers. comm. 1995). On 
Lanai, this invasive alien plant threatens all populations of Hedyotis 
schlechtendahliana var. remyi, the only known population of Labordia 
tinifolia var. lanaiensis, and the only known population of Melicope 
munroi (HHP 1991e1 to 1991e3; R. Hobdy, pers. comm. 1994; J. Lau, pers. 
comm. 1995).
    Schinus terebinthifolius (Christmas berry), introduced to Hawaii 
before 1911, is a fast-growing tree or shrub invading most mesic to wet 
lowland areas of the major Hawaiian Islands (Wagner et al. 1990). 
Schinus terebinthifolius is distributed mainly by feral pigs and fruit-
eating birds and forms dense thickets that shade out and displace other 
plants (Cuddihy and Stone 1990, Smith 1985, Stone 1985). This species 
is a threat to one population of Hedyotis schlechtendahliana var. 
remyi, and the only known populations of Labordia tinifolia var. 
lanaiensis and Labordia triflora (HHP 1991e2; R. Hobdy, pers. comm. 
1994; J. Lau, pers. comm. 1995).
    Rubus rosifolius (thimbleberry), native to Asia, is naturalized in 
disturbed mesic to wet forest on all of the main Hawaiian Islands and 
is perhaps the most widespread of all species of Rubus introduced to 
Hawaii (Cuddihy and Stone 1990). On Maui, this species threatens one of 
the two populations of Cyanea copelandii ssp. haleakalaensis as well as 
Cyanea glabra (NTBG 1994; A.C. Medeiros, pers. comm. 1995).
    Clidemia hirta (Koster's curse), a noxious shrub native to tropical 
America, is found in mesic to wet forests on at least six islands in 
Hawaii (Almeda 1990, Hawaii Department of Agriculture 1981, Smith 
1992). Clidemia hirta was first reported on Oahu in 1941 and had spread 
through much of the Koolau Mountains by the early 1960s. This noxious 
plant forms a dense understory, shading out other plants and hindering 
plant regeneration (Cuddihy and Stone 1990). This prolific alien plant 
has recently spread to five other islands and, on Maui is a potential 
threat to Clermontia samuelii, Cyanea copelandii ssp. haleakalaensis 
and Cyanea glabra (A.C. Medeiros, pers. comm. 1995).
    Miconia calvescens (velvet tree) is a recently naturalized species 
native to tropical America. This species has become invasive in the 
Hamakua coast and Pahoa areas of the island of Hawaii, the island of 
Oahu, and has become established on East Maui. This species has the 
potential to be very disruptive, as it has become an understory 
dominate where introduced to similar habitat in Tahiti (Almeda 1990, 
Cuddihy and Stone 1990). This species occurs on Maui near populations 
of Clermontia samuelii and poses a potential threat (A.C. Medeiros, 
pers. comm. 1995).
    Myrica faya (firetree), native to the Azores, Madeira, and the 
Canary Islands, was introduced to Hawaii before 1900 for wine-making, 
firewood, or an ornamental. Trees were planted in forest reserves in 
the 1920s. By the mid-1980s M. faya had infested over 34,000 hectares 
(83,980 acres) throughout the State, with the largest infestations on 
the island of Hawaii. It is now considered a noxious weed (Cuddihy and 
Stone 1990, DOA 1981). Myrica faya can form a dense stand with no 
ground cover beneath the canopy. This lack of ground cover may be due 
to dense shading or to chemicals released by the tree that prevent 
other species from growing. Myrica faya also fixes nitrogen and 
increases nitrogen levels in Hawaii's typically nitrogen-poor volcanic 
soils. This may encourage the invasion of alien plants that would not 
normally be able to grow as well as native species in the low-nitrogen 
soils of Hawaii (Cuddihy and Stone 1990). On Lanai, this species 
threatens Hedyotis schlechtendahliana var. remyi and Labordia tinifolia 
var. lanaiensis (HHP 1991e3; R. Hobdy, pers. comm. 1994).
    Paspalum conjugatum (Hilo grass) is naturalized in moist to wet 
disturbed areas on all of the main Hawaiian Islands except Niihau and 
Kahoolawe, and produces a dense ground cover (Cuddihy and Stone 1990). 
In Maui's Kipahulu Valley, this grass threatens one of the two 
populations of Cyanea copelandii ssp. haleakalaensis, as well as Cyanea 
glabra (NTBG 1994; A.C. Medeiros, pers. comm. 1995). On West Maui, P. 
conjugatum threatens Dubautia plantaginea ssp. humilis (HPCC 1990).
    Psidium guajava (common guava), a shrub or small tree native to the 
New World tropics, is naturalized on all of the main islands, except, 
perhaps, Niihau and Kahoolawe (Wagner et al. 1990). Psidium guajava is 
a serious weed that invades disturbed sites, forming dense thickets in 
dry as well as mesic and wet forests (Smith 1985, Wagner et al. 1990). 
On Maui, this species threatens one of the two known populations of 
Cyanea copelandii ssp. haleakalaensis, as well as Cyanea glabra and 
Dubautia plantaginea ssp. humilis

[[Page 48318]]

(HPCC 1990; Higashino et al. 1988; A.C. Medeiros, pers. comm. 1995).
    Casuarina equisetifolia (ironwood) is a large, fast-growing tree 
that reaches up to 20 m (65 ft) in height (Wagner et al. 1990). This 
large tree shades out other plants, takes up much of the available 
nutrients, and possibly releases a chemical agent that prevents other 
plants from growing beneath it (Neal 1965, Smith 1985). Casuarina 
equisetifolia is invading the wet cliffs of Iao Valley and is a threat 
to Dubautia plantaginea ssp. humilis (HPCC 1990; HHP 1991d1; R. Hobdy, 
pers. comm. 1995).
    Leptospermum scoparium (New Zealand tea), brought to Hawaii as an 
ornamental plant and now naturalized in disturbed mesic to wet forest 
on three islands, threatens Hedyotis schlechtendahliana var. remyi, and 
the only known populations of Labordia tinifolia var. lanaiensis and 
Melicope munroi (Wagner et al. 1990; J. Lau, pers. comm. 1995).
    Ageratina adenophora (Maui pamakani), native to tropical America, 
has become naturalized in dry areas to wet forest on Oahu, Molokai, 
Lanai, Maui, and Hawaii (Wagner et al. 1990). This noxious weed forms 
dense mats with other alien plants and prevents regeneration of native 
plants (Anderson et al. 1992). On Maui, one of the two known 
populations of Cyanea copelandii ssp. haleakalaensis, as well as Cyanea 
glabra and Cyanea hamatiflora ssp. hamatiflora are threatened by this 
species (NTBG 1995; R. Hobdy, pers. comm. 1995).
    Rubus argutus (prickly Florida blackberry) was introduced to the 
Hawaiian Islands in the late 1800s from the continental U.S. (Haselwood 
and Motter 1983). The fruits are easily spread by birds to open areas 
such as disturbed mesic or wet forests, where the species forms dense, 
impenetrable thickets (Smith 1985). One of two known populations of 
Cyanea copelandii ssp. haleakalaensis, as well as Cyanea glabra are 
threatened by this species (A.C. Medeiros, pers. comm. 1995).
    Hedychium coronarium (white ginger) was introduced to Hawaii in the 
late 1800s, probably by Chinese immigrants. It escaped from cultivation 
and is found in wet and mesic forests on most of the main Hawaiian 
islands. The large, vigorous herbs mainly reproduce vegetatively, 
forming very dense stands that exclude all other growth. Hedychium 
gardnerianum (kahili ginger) was introduced to Hawaii before 1940 from 
the Himalayas, and now has major infestations on the islands of Hawaii, 
Maui, and Kauai. This species is considered a more serious threat to 
native forests because it produces abundant fruit (Cuddihy and Stone 
1990, Wagner et al. 1990). Both species of Hedychium threaten 
Clermontia samuelii (A.C. Medeiros, pers. comm. 1995), and H. 
gardnerianum is a threat to Labordia tinifolia var. lanaiensis (R. 
Hobdy, pers. comm. 1994).
    Tibouchina herbacea (glorybush), a relative of Koster's curse, 
first became established on the island of Hawaii in the late 1970s and, 
by 1982, was collected in Lanilili on West Maui (Almeda 1990). Although 
the disruptive potential of this alien plant is not fully known, T. 
herbacea appears to be invading mesic and wet forests of Hawaii and 
Maui (Cuddihy and Stone 1990), and is considered a threat to Clermontia 
samuelii, Cyanea copelandii ssp. haleakalaensis, and Cyanea glabra (R. 
Hobdy and A.C. Medeiros, pers. comms. 1995).
    Sporobolus africanus (smutgrass) was introduced from Africa and has 
become naturalized on all the main islands of Hawaii except Niihau and 
Kahoolawe. It is typically found in disturbed areas such as road sides 
and pastures (O'Connor 1990), and on Maui is a threat to Dubautia 
plantaginea ssp. humilis (HPCC 1990).
    Pluchea symphytifolia (sourbush) is native to Mexico, the West 
Indies, and northern South America. This species is naturalized in dry 
forests and ranges into mesic and wet forests on all the main Hawaiian 
islands (Wagner et al. 1990). It is a fast growing shrub and can form 
dense thickets (Smith 1985). Pluchea symphytifolia is a threat to 
Dubautia plantaginea ssp. humilis on West Maui (HPCC 1990).
    Emelia fosbergii is a pantropical weed of unknown origin. In Hawaii 
it is a common weed in disturbed lowland dry habitats on all the main 
islands (Wagner et al. 1990). Emelia fosbergii is a threat to the only 
known population of Kanaloa kahoolawensis (Lorence and Wood 1994).
    Nicotiana glauca (tree tobacco) was brought to Oahu as an 
ornamental from Argentina in the 1860s. It is now naturalized in all 
warm temperate regions of the world. On Oahu, Lanai, Maui, and 
Kahoolawe, this species is naturalized in disturbed open, dry habitats 
(Symon 1990). Nicotiana glauca is a threat to the only known population 
of Kanaloa kahoolawensis (Lorence and Wood 1994).
    Chloris barbata (swollen finger grass) is native to Central 
America, the West Indies, and South America. In Hawaii it is 
naturalized in disturbed dry areas on all the main islands, and is a 
threat to the only known population of Kanaloa kahoolawensis (Lorence 
and Wood 1994, O'Connor 1990).
    Erosion, landslides, rockslides, and flooding due to natural 
weathering result in the death of individual plants as well as habitat 
destruction. This especially affects the continued existence of taxa or 
populations found on cliffs, steep slopes, and stream banks that have 
limited numbers and/or narrow ranges such as the West Maui population 
of Cyanea glabra, Cyanea hamatiflora ssp. hamatiflora, Dubautia 
plantaginea ssp. humilis, and Kanaloa kahoolawensis (Lorence and Wood 
1994; R. Hobdy, pers. comm. 1995).
    The small number of populations and individuals of many of these 
taxa increases the potential for extinction from a single human-caused 
or natural environmental disturbance. In addition, the small gene pool 
may depress reproductive vigor. Four of the plants, Kanaloa 
kahoolawensis, Labordia tinifolia var. lanaiensis, Labordia triflora, 
and Melicope munroi, are each known from a single population. Four 
additional taxa have five or fewer populations (Cyanea copelandii ssp. 
haleakalaensis, Cyanea glabra, Dubautia plantaginea ssp. humilis, and 
Hedyotis schlechtendahliana var. remyi), and three of the taxa are 
estimated to number no more than 10 individuals (Hedyotis 
schlechtendahliana var. remyi, Kanaloa kahoolawensis, and Labordia 
triflora). All of the taxa in this final rule either number fewer than 
15 populations or total fewer than 1,000 individuals (see Table 2).
    We have carefully assessed the best scientific and commercial 
information available regarding the past, present, and future threats 
faced by these taxa in determining to make this rule final. Based on 
this evaluation, we find that these 10 species should be listed as 
endangered--Clermontia samuelii, Cyanea copelandii ssp. haleakalaensis, 
Cyanea glabra, Cyanea hamatiflora ssp. hamatiflora, Dubautia 
plantaginea ssp. humilis, Hedyotis schlechtendahliana var. remyi, 
Kanaloa kahoolawensis, Labordia tinifolia var. lanaiensis, Labordia 
triflora, and Melicope munroi. All of these taxa are threatened by one 
or more of the following--habitat degradation and/or predation by pigs, 
goats, deer, rats, and invertebrates; competition with alien plant taxa 
for space, light, water, and nutrients; and, substrate loss. Eight of 
the taxa have five or fewer populations, and three of these taxa are 
estimated to number no more than 10 individuals. Small population size 
and limited distribution make eight of these taxa particularly 
vulnerable to extinction from reduced reproductive

[[Page 48319]]

vigor or from random environmental events. Because all of the 10 taxa 
are in danger of extinction throughout all or a significant portion of 
their ranges, they fit the definition of endangered as defined in the 
Act. Therefore, the determination of endangered status for these 10 
taxa is warranted.

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 
consideration 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.

Prudency Determination

    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. Critical 
habitat is not prudent when one or both of the following situations 
exist--(i) 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; (ii) designation of critical habitat would not 
be beneficial to the species.
    In the proposed rule, we indicated that designation of critical 
habitat was not prudent for the six taxa (Dubautia plantaginea ssp. 
humilis, Hedyotis schlechtendahliana var. remyi, Kanaloa kahoolawensis, 
Labordia tinifolia var. lanaiensis, Labordia triflora, and Melicope 
munroi) that are located primarily on non-Federal lands with limited 
Federal activities because of a concern that publication of precise 
maps and descriptions of critical habitat in the Federal Register could 
increase the vulnerability of these plant species to incidents of 
collection and general vandalism. In the case of plants, increased 
visits to the sites where rare species are found could contribute to 
the decline of existing populations through overcollection or 
vandalism. We also indicated that designation of critical habitat was 
not prudent for the other four taxa (Clermontia samuelii, Cyanea 
copelandii ssp. haleakalaensis, Cyanea glabra, and Cyanea hamatiflora 
ssp. hamatiflora) located primarily on Federal lands within Haleakala 
National Park. National Parks are managed for the protection of native 
ecosystems, which should promote protection, conservation, and recovery 
of plants that are part of those ecosystems, suggesting no significant 
benefit from a designation of critical habitat.
    In light of recent court decisions (e.g., Natural Resources Defense 
Council v. U.S. Department of the Interior 113 F. 3d 1121 (9th Cir. 
1997); Conservation Council for Hawaii v. Babbitt, 2 F. Supp. 2d 1280 
(D. Hawaii 1998)) issued since the proposed rule was published we have 
reconsidered the prudency finding under the Act. In the Natural 
Resources Defense Council case (hereafter NRDC), the Ninth Circuit 
held, first, that a not prudent finding premised on increased threats 
was justified only if the Service weighs, based on facts in the record, 
the benefits of designation against the risks of designation. Second, 
it held that the Service erred in finding no benefit to critical 
habitat simply because critical habitat would not control the majority 
of land-use activities within critical habitat, and that to do so was 
inconsistent with Congressional intent that the not prudent exception 
to designation should apply ``only in rare circumstances.'' With regard 
to non-Federal lands, the court found that they would be subject to 
section 7 requirements in the future if their use involved any form of 
Federal agency authorization or action. Third, the court found that the 
existence of another type of protection, even if potentially greater 
than that provided by designating critical habitat, does not justify a 
not prudent finding.
    The Service continues to be concerned that designation of critical 
habitat could potentially increase the threats to these species. Due to 
low numbers of individuals or populations and their inherent 
immobility, these plants are vulnerable to unrestricted collection, 
vandalism or other disturbance. We also remain concerned that these 
threats may be exacerbated by the publication of critical habitat maps 
and further dissemination of locational information. However, we have 
examined the evidence available for each of these ten taxa and have 
not, at this time, found specific evidence of taking, vandalism, 
collection or trade of any of them or of similarly situated species. 
Consequently, consistent with applicable regulations (50 CFR 
424.12(a)(1)(i)), we do not find that any of these species are 
currently threatened by taking or other human activity, which threats 
would be exacerbated by the designation of critical habitat.
    In the absence of a finding that critical habitat would increase 
threats to a species, if there are any benefits to critical habitat 
designation, then a prudent finding is warranted pursuant to the NRDC 
decision. In the case of these taxa, there may be some benefits to 
critical habitat. The primary regulatory effect of critical habitat is 
the section 7 requirement that Federal agencies refrain from taking any 
action that destroys or adversely modifies critical habitat. Four of 
these species (Clermontia samuelii, Cyanea copelandii ssp. 
haleakalaensis, Cyanea glabra, and Cyanea hamatiflora ssp. hamatiflora) 
occur in part on Federal land that would be subject to section 7. The 
fact that this is land administered by the National Park Service does 
not, in itself, justify a not prudent finding in the Ninth Circuit. 
However, we will determine at the time of designation whether National 
Park Service lands meet the statutory definition of critical habitat. 
While the other taxa (Dubautia plantaginea ssp. humilis, Hedyotis 
schlechtendahliana var. remyi, Kanaloa kahoolawensis, Labordia 
tinifolia var. lanaiensis, Labordia triflora, and Melicope munroi) are 
located exclusively on non-Federal lands with limited Federal 
activities, there may be Federal actions affecting these lands in the 
future. While a critical habitat designation for habitat currently 
occupied by these species would not be likely to change the section 7 
consultation outcome because an action that destroys or adversely 
modifies such critical habitat would also be likely to result in 
jeopardy to the species, there may be instances where section 7 
consultation would be triggered only if critical habitat is designated. 
Examples could include unoccupied habitat or occupied habitat that may 
become unoccupied in the future. There may also be some educational or 
informational benefits to critical habitat. Therefore, we find that 
critical habitat is prudent for the 10 Maui Nui plant taxa, Clermontia 
samuelii, Cyanea copelandii ssp. haleakalaensis, Cyanea glabra, Cyanea 
hamatiflora ssp. hamatiflora, Dubautia plantaginea ssp. humilis, 
Hedyotis schlechtendahliana var. remyi, Kanaloa kahoolawensis, Labordia 
tinifolia var. lanaiensis, Labordia triflora, and Melicope munroi.

Proposed Critical Habitat Designations Will Be Consistent With The 
Service's Listing Priority Guidance

    As a Tier 2 activity, the processing of this final rule conforms 
with our current

[[Page 48320]]

listing priority guidance (LPG) for fiscal years 1998 and 1999, 
published in the Federal Register on May 8, 1998 (63 FR 25502). 
However, at this time, designation of critical habitat is a Tier 3 
activity under the current LPG. While we allocated about 17 percent of 
the total listing budget for critical habitat actions this fiscal year, 
all of Region 1's allocation will be spent complying with court-ordered 
designations. Completion of any other Tier 3 activity in Region 1 this 
fiscal year is precluded by higher priority listing actions. Future 
work on proposed critical habitat designations for these taxa will be 
scheduled based on future listing appropriations, the LPG in effect at 
that time, and their relative priority compared to other pending 
critical habitat proposals.
    The Act imposes more listing duties than we currently are able to 
meet due to lack of adequate funding. To deal with this difficult 
situation, we have developed a series of LPGs to prioritize our various 
listing activities in such a way as to secure the most protection for 
the greatest number of the most imperiled species in the least time.

The Listing Priority Guidance

    The Federal Register notices for the LPGs describe the fiscal 
constraints imposed over the past four years in detail. 63 FR 25502 
(May 8, 1998) (FY 1998/1999 LPG); 61 FR 64475 (Dec. 5, 1996) (FY 1997 
LPG); 61 FR 24722 (May 16, 1996) (FY 1996 LPG). In brief, Congress 
originally appropriated $7.999 million for listing in FY 1995. On April 
10, 1995, Congress enacted a moratorium on final listing determinations 
and critical habitat designations, and rescinded $1.5 million (nearly 
twenty percent) of the listing budget. The severe funding shortages and 
the listing moratorium continued in FY 1996. From October 1, 1995, 
until April 26, 1996, the Department of the Interior operated without a 
regularly enacted full-year appropriations bill. Instead, funding for 
most of the Department's programs, including the endangered species 
listing program, was governed by a series of thirteen ``continuing 
resolutions'' (CRs) that severely reduced or eliminated funding for the 
Service's listing program. Their net effect was essentially to shut 
down the listing program.
    After more than six months of continuing resolutions, Congress 
allowed the President to lift the listing moratorium and appropriated 
$4.0 million for listing in FY 1996, far short of the funds necessary 
to process the backlog of 243 final listing determinations that 
required action. In FY 1997, although the President requested 
approximately $7.5 million for listing, Congress appropriated only $5.0 
million. The President requested and received $5.19 million for listing 
in FY 1998, and Congress expressly prohibited the expenditure of any 
additional funds for listing. This reduced listing budget request was 
based on a realistic assessment of the level of funding that might be 
obtained and reflected a need to address other endangered species 
program activities such as conducting section 7 consultations, 
processing section 10 incidental take permit applications, and 
developing and implementing recovery plans. Although the Department 
also requested that Congress include the amount of the budget that 
could be allocated to listing on the face of the appropriations bill, 
it did so only to clarify Congress' intent, previously expressed in 
Congressional committee reports, that we not divert funding to listings 
from other programs. In FY 1999, the President requested significant 
increases for all Endangered Species programs, including an increase of 
$1.5 million for listing. However, Congress appropriated only an 
additional $566,000, for a total listing budget of $5.756 million, 
again with an express cap on the listing budget.
    To address the backlog that has resulted from the listing 
moratorium and subsequent funding constraints, and to meet litigation 
deadlines, we employed the LPGs to prioritize listing actions. The 
1996, 1997, and 1998/99 LPGs use categories or ``tiers'' of Act listing 
actions to guide the expenditure of limited listing funds. Each year, 
the content and number of tiers has changed somewhat, reflecting the 
progress that the Service has made in reducing the listing backlog. In 
the current guidance, the highest priority (Tier 1) is assigned to 
emergency listings of species facing an imminent risk of extinction. 
The second highest priority (Tier 2) includes processing final 
determinations on proposed additions to the lists of endangered and 
threatened species, processing new proposals to add species to the 
lists, and processing petition findings to add species to the lists. 
Preparing proposed and final rules to designate critical habitat is 
assigned the lowest priority (Tier 3).
    It is essential during periods of limited listing funds to maximize 
the conservation benefit of listing appropriations. Designation of 
critical habitat is very resource-intensive, and in most cases provides 
little additional protection. As explained previously, the primary 
regulatory effect of critical habitat is the section 7 requirement that 
Federal agencies refrain from taking any action that destroys or 
adversely modifies critical habitat. While in some cases critical 
habitat may result in some additional section 7 coverage, for example 
in unoccupied habitat, the prohibition on destroying critical habitat 
generally overlaps the jeopardy prohibition of section 7. There may 
also be other benefits of critical habitat, such as increased awareness 
by the general public and State and government agencies of the 
importance of certain habitat areas. Nevertheless, compared with the 
benefits of listing as endangered or threatened, those species that 
presently have no protection under the Act, designating critical 
habitat for species already receiving its full protection provides 
relatively fewer conservation benefits.
    Furthermore, designation of critical habitat is expensive and time-
consuming. It entails the detailed identification of all areas 
containing the physical or biological features essential to the 
conservation of each species (16 U.S.C. 1532(5)(A)). Then, we must 
determine which of these areas may require special management 
considerations or protection. Maps and written legal descriptions must 
be prepared for each area to be proposed for critical habitat (50 CFR 
424.12(c)). We must also consider the economic and other impacts of 
designating areas as critical habitat (16 U.S.C. 1533(b)(2)). This 
requires the preparation of an economic analysis and consideration of 
any additional available information concerning other impacts. Then we 
must determine whether the benefits of excluding any particular area 
outweigh the benefits of including that area as part of the critical 
habitat. To insure that the affected public and State and local 
governments have an adequate opportunity to comment, we must also 
publish each critical habitat proposal in the Federal Register for 
public comment; provide actual notice of the proposed regulation to 
appropriate State and local government agencies where the taxon is 
believed to occur; publish a summary of each proposal in a newspaper of 
general circulation in each area where the taxon is believed to occur; 
and hold public hearings if requested (16 U.S.C. 1533(b)(5)).
    It is very difficult to estimate precisely the time and cost to 
develop critical habitat designations for the plants at issue here and 
we intend to streamline the process to the extent possible consistent 
with our statutory obligations. For example, for the Mexican spotted 
owl, the actual designation cost over $341,000. Obviously, the greater 
the number of species, the greater the cost. Because of

[[Page 48321]]

the marginal additional protection critical habitat provides, and the 
cost of designating it, critical habitat designations have been 
accorded a lower priority under the LPG.
    Adherence to the LPG has allowed us to make great strides in 
eliminating the backlog of pending listing proposals, thus allowing the 
implementation of a more balanced listing program. When the moratorium 
was lifted, final decisions for 243 proposed listings were pending. In 
the four calendar years prior to the moratorium, we made final listing 
decisions for an average of 88 species per year. In comparison, in the 
twelve months after the moratorium was lifted on April 26, 1996, we 
made final listing determinations for 131 species. Since that time, we 
further reduced the backlog of pending proposals to list domestic 
species, so that 68 such proposals remain pending (as of June 24, 
1999), only 1 of which was published prior to the moratorium.
    However, at present we still face the dilemma that we cannot 
complete all of our statutory listing duties within the time frames 
mandated by Congress, given the insufficient funds appropriated by 
Congress for this purpose. The LPG is the most efficient way, 
consistent with the purposes of the Act, for us to pursue the goal of 
reestablishing full compliance with the Act.
    The progress we have made in reducing the listing backlog by 
employing the LPG has allowed us to slowly expand the activities we 
undertake. Resuming work on critical habitat designations, where 
prudent, is the next step in this process. In fact, we set aside 
$979,000 from the 1999 listing budget to undertake critical habitat 
actions. However, current budget levels are clearly insufficient for us 
to undertake all of our outstanding critical habitat designations in 
addition to meeting our other mandatory listing duties under the Act. 
Therefore, we plan to employ a priority system for deciding which ones 
should be addressed first. We will focus our efforts on those 
designations that will provide the most conservation benefit, taking 
into consideration the efficacy of critical habitat designation in 
addressing the threats to the species, the magnitude and immediacy of 
those threats, and the amount of resources necessary to complete the 
designation. We are also in the process of re-examining procedures and 
requirements for critical habitat designation, in order to streamline 
and expedite such actions to the maximum extent permitted under law (64 
FR 31871, June 14, 1999) (notice of intent to clarify the role of 
habitat in endangered species conservation).

Region 1's Workload

    Administratively, the Service is divided into seven geographic 
regions, which report to our headquarters in Washington, DC. Each 
region has a regional office and a number of field offices that report 
to the regional office. These ten species are under the jurisdiction of 
Region 1, which includes California, Oregon, Washington, Idaho, Nevada, 
Hawaii, and various Pacific Islands. Within Region 1, these species are 
the responsibility of the Pacific Islands Fish and Wildlife Office in 
Honolulu, Hawaii.
    Region 1 has by far the heaviest endangered species workload of the 
Service's seven regions. About one-half of all species listed under the 
Act fall within Region 1's jurisdiction. Since the listing moratorium 
was lifted in April 1996, Region 1 has expended much of its limited 
listing resources on the completion of final determinations on proposed 
rules to list species. From April 1996 through June 24, 1999, we made 
210 final determinations for Region 1 species (81 percent of the 
nationwide total of 260). In that time frame, Region 1 also proposed 
rules for 49 species (56 percent of the nationwide total of 88), and 
completed 9 petition findings (20 percent of the nationwide total of 
44).
    Region 1 likewise has a heavy listing workload for the remainder of 
FY 1999. Region 1 has the lead on forty-six species proposed for 
listing for which final determinations must be made. Region 1 must also 
complete 12-month findings for an additional five species. Moreover, 
Region 1 has primary responsibility for about 100 candidate species, 
many of which face imminent, high-magnitude threats to their existence. 
Finally, Region 1 has 5 listing petitions awaiting 90-day findings. 
Under the LPG, these are all Tier 2 activities that should be given 
priority to ensure that species in need of the fundamental protections 
of the Act are addressed. Currently, there is one draft final delisting 
package awaiting revision by the Pacific Islands Fish and Wildlife 
Office listing staff and, seven draft proposed listing packages 
covering 39 species awaiting revision by either the Regional Office 
listing staff or the Pacific Islands Fish and Wildlife Office. In 
addition, preparation of proposed listing rules for 28 Hawaiian plant 
species and 2 species of butterflies from the Northern Marianas Islands 
have been put on hold indefinitely due to the increased workload 
associated with the determination and designation of critical habitat 
for the listed species under litigation.
    Region 1 must also expend its listing resources to comply with 
existing court orders or settlement agreements. In fact, this fiscal 
year, all of the Region's allocation for critical habitat actions will 
be expended to comply with these court orders. For example, we have 
been ordered to propose critical habitat for the tidewater goby by 
August 3, 1999, and to complete final critical habitat designation for 
the western snowy plover by December 1, 1999. In addition, Region 1 had 
to comply with a court order to reanalyze a previous not prudent 
finding for critical habitat for the coastal California gnatcatcher. 
This reanalysis was completed this fiscal year, and we are beginning 
the analysis on specific sites to identify any areas that may be 
appropriate for proposed critical habitat designation. Complying with 
these orders will require a significant commitment of resources.
    By far the greatest litigation-driven commitment of listing 
resources will be required to comply with the order in Conservation 
Council of Hawaii v. Babbitt. There, the district court remanded to the 
Service its ``not prudent'' findings on critical habitat designation 
for 245 species of Hawaiian plants. The court ordered us not only to 
reconsider these findings but also to designate critical habitat for 
any species for which we determine on remand that critical habitat 
designation is prudent. This order essentially requires a single field 
office to draft critical habitat determinations for over one-fifth of 
all the species that have ever been listed in the history of the Act, 
and encompasses more than one-third of all listed plants. Compliance 
with this court order, set on a schedule to run through 2003, will 
require an enormous commitment of listing resources that may delay 
other Region 1 listing activity for years. Because of this tremendous 
court ordered workload, the Pacific Islands Fish and Wildlife Office is 
only working on emergency listing actions (Tier 1) in addition to 
lawsuit driven listing activities; all remaining Tier 2 activities 
remaining in the office will not be completed. While we cannot predict 
the outcome of the Congressional appropriation process for FY 2000 it 
is very unlikely that it will see a significant increase in its listing 
budget and it is more reasonable to expect that the budget will be at a 
slightly lower level than FY 1999. If this is the case, it is likely 
that the Pacific Islands Fish and Wildlife Office will continue to have 
the ability to work only on court ordered and emergency listing 
actions.

[[Page 48322]]

    Of the $5.756 million appropriated in FY 1999 for listing actions, 
Region 1 was allocated $2.964 million (over 50 percent). Of the 
$979,000 allocated to critical habitat, Region 1 received $460,000, or 
47 percent. These funds are insufficient to fulfill all of its section 
4 listing duties during FY 1999 as well as to comply with existing 
court orders regarding critical habitat. Therefore, designating 
critical habitat for these 10 taxa at this time (Tier 3 activities) 
would come at the expense of providing basic protection under the Act 
to species not yet listed (Tier 2 activities).
    We will develop critical habitat designations for these ten taxa as 
soon as feasible. At the present time, we expect that the most 
expeditious way of processing these designations will be to process 
them with the 245 Hawaiian plant species for which critical habitat 
determinations have been remanded to us in Conservation Council of 
Hawaii v. Babbitt. As a result, we currently anticipate that the 
proposed critical habitat designation will be completed by April 20, 
2002, and the final rules will be completed by April 20, 2003.

Available Conservation Measures

    Conservation measures provided to species listed as endangered or 
threatened under the Act include recognition, recovery actions, 
requirements for Federal protection, and prohibitions against certain 
activities. Recognition through listing can encourage and result in 
conservation actions by Federal, State, and local agencies, private 
organizations, and individuals. The Act provides for possible land 
acquisition and cooperation with the State and requires that recovery 
plans be developed for 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)(2) of the Act requires Federal agencies to 
ensure that activities they authorize, fund, or carry out are not 
likely to jeopardize the continued existence of a listed species or to 
destroy or adversely modify its critical habitat. If a Federal action 
may affect a listed species or its critical habitat, the responsible 
Federal agency must enter into formal consultation with the Service. 
Populations of four of the endangered taxa occur on National Park 
Service land. The National Park Service monitors and manages rare and 
endangered species populations within Haleakala National Park (S. 
Anderson, pers. comm. 1998).
    The Act and its implementing regulations set forth a series of 
general prohibitions and exceptions that apply to all endangered 
plants. With respect to the 10 species in this final rule, all 
prohibitions of section 9(a)(2) of the Act, implemented by 50 CFR 
17.61, would apply. These prohibitions, in part, make it illegal for 
any person subject to the jurisdiction of the United States to import 
or export any endangered plant species to/from the United States; 
transport such species in interstate or foreign commerce in the course 
of a commercial activity; sell or offer for sale such a species in 
interstate or foreign commerce; remove and reduce such a species to 
possession from areas under Federal jurisdiction; maliciously damage or 
destroy any such species from areas under Federal jurisdiction; or 
remove, cut, dig up, or damage or destroy any such species in knowing 
violation of any State law or regulation, including State criminal 
trespass law. Certain exceptions to the prohibitions apply to agents of 
the Service and State conservation agencies.
    The Act and 50 CFR 17.62 provide for the issuance of permits to 
carry out otherwise prohibited activities involving endangered plant 
species under certain circumstances. Such permits are available for 
scientific purposes and to enhance the propagation or survival of the 
species. It is anticipated that few permits would ever be sought or 
issued because these 10 species are not common in cultivation or in the 
wild.
    It is our policy, 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. Four of the 
species occur on Federal lands under the jurisdiction of the National 
Park Service. Collection, damage, or destruction of these species on 
Federal lands is prohibited without a Federal endangered species 
permit. Such activities on non-Federal lands would constitute a 
violation of section 9 if conducted in knowing violation of Hawaii 
State law or regulations or in violation of a State criminal trespass 
law (see Hawaii State Law section below). We are not aware of any trade 
in these species.
    We believe that, based on the best available information at this 
time, the following actions will not result in a violation of section 9 
on private land provided that they do not violate State trespass or 
other laws--hunting, bird watching, and hiking. Activities for which a 
Federal endangered species permit is issued to allow collection for 
scientific or recovery purposes would also not result in a violation of 
section 9. We are 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. General prohibitions 
and exceptions that apply to all endangered plants in section 9(a)(2) 
of the Act, implemented by 50 CFR 17.61, apply as discussed earlier in 
this section.
    Questions regarding whether specific activities will constitute a 
violation of section 9 of the Act should be directed to the Pacific 
Islands Ecoregion Manager (see ADDRESSES section). Requests for copies 
of the regulations concerning listed plants and inquiries regarding 
prohibitions and permits may be addressed to the Fish and Wildlife 
Service, Ecological Services, Permits Branch, 911 N.E. 11th Avenue, 
Portland, Oregon 97232-4181 (telephone 503-231-2063; facsimile 503-231-
6243).

Hawaii State Law

    Federal listing will automatically invoke listing under the State's 
endangered species law. Hawaii's endangered species law states, ``Any 
species of aquatic life, wildlife, or land plant that has been 
determined to be an endangered species pursuant to the Federal 
Endangered Species Act shall be deemed to be an endangered species 
under the provisions of this chapter * * *'' (HRS, sect. 195D-4(a)). 
Therefore, Federal listing will accord the species listed status under 
Hawaii State law. State law prohibits cutting, collecting, uprooting, 
destroying, injuring, or possessing any listed species of plant on 
State or private land, or attempting to engage in any such conduct. The 
State law encourages conservation of such species by State agencies and 
triggers other State regulations to protect the species (HRS, sect. 
195AD-4 and 5).

Paperwork Reduction Act

    This rule does not contain any new collections of information other 
than those already approved under the Paperwork Reduction Act, 44 
U.S.C. 3501 et seq., and assigned Office of Management and Budget 
clearance

[[Page 48323]]

number 1018-0094. An agency may not conduct or sponsor, and a person is 
not required to respond to, a collection of information unless it 
displays a currently valid control number. For additional information 
concerning permit and associated requirements for endangered species, 
see 50 CFR 17.62.

National Environmental Policy Act

    We have 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 Act. We 
published a notice outlining our reasons for this determination 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 Pacific Islands Fish and Wildlife Office (see 
ADDRESSES section).

Author

    The authors of this final rule are Karen ``Kitti'' Jensen and 
Christa Russell, telephone 808-541-3441 or facsimile 808-541-3470 (see 
ADDRESSES section).

List of Subjects in 50 CFR Part 17

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

Final Regulation Promulgation

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

PART 17--[AMENDED]

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

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

    2. Amend section 17.12(h) by adding the following, in alphabetical 
order under FLOWERING PLANTS, to the List of Endangered and Threatened 
Plants:


Sec. 17.12  Endangered and threatened plants.

* * * * *
    (h) * * *

--------------------------------------------------------------------------------------------------------------------------------------------------------
                        Species
--------------------------------------------------------    Historic range           Family            Status      When listed    Critical     Special
         Scientific name                Common name                                                                               habitat       rules
--------------------------------------------------------------------------------------------------------------------------------------------------------
         Flowering Plants
 
                   *                  *                  *                  *                  *                  *                  *
Clermontia samuelii..............  Oha wai.............  U.S.A (HI).........  Campanulaceae--Bell  E                       666           NA           NA
                                                                               flower.
 
                   *                  *                  *                  *                  *                  *                  *
Cyanea copelandii ssp.             Haha................  U.S.A. (HI)........  Campanulaceae--Bell  E                       666           NA           NA
 haleakalaensis.                                                               flower.
 
                   *                  *                  *                  *                  *                  *                  *
Cyanea glabra....................  Haha................  U.S.A. (HI)........  Campanulaceae--Bell  E                       666           NA           NA
                                                                               flower.
 
                   *                  *                  *                  *                  *                  *                  *
Cyanea hamatiflora ssp.            Haha................  U.S.A. (HI)........  Campanulaceae--Bell  E                       666           NA           NA
 hamatiflora.                                                                  flower.
 
                   *                  *                  *                  *                  *                  *                  *
Dubautia plantaginea ssp. humilis  Naenae..............  U.S.A. (HI)........  Asteraceae--Sunflow  E                       666           NA           NA
                                                                               er.
 
                   *                  *                  *                  *                  *                  *                  *
Hedyotis schlechtendahliana var.   Kopa................  U.S.A. (HI)........  Rubiaceae--Coffee..  E                       666           NA           NA
 remyi.
 
                   *                  *                  *                  *                  *                  *                  *
Kanaloa kahoolawensis............  None................  U.S.A. (HI)........  Fabaceae--Legume...  E                       666           NA           NA
 
                   *                  *                  *                  *                  *                  *                  *
Labordia tinifolia var.            Kamakahala..........  U.S.A. (HI)........  Loganiaceae--Logan.  E                       666           NA           NA
 lanaiensis.
 
                   *                  *                  *                  *                  *                  *                  *
Labordia triflora                  Kamakahala..........  U.S.A. (HI)........  Loganiaceae--Logan.  E                       666           NA           NA
 
                   *                  *                  *                  *                  *                  *                  *
Melicope munroi..................  Alani...............  U.S.A. (HI)          ...................  E                       666           NA           NA
                                                          Rutaceae--Citrus.
 
                   *                  *                  *                  *                  *                  *                  *
--------------------------------------------------------------------------------------------------------------------------------------------------------


[[Page 48324]]

    Dated: August 24, 1999.

John G. Rogers,
Acting Director, Fish and Wildlife Service.
[FR Doc. 99-22969 Filed 9-2-99; 8:45 am]
BILLING CODE 4310-55-P