[Federal Register Volume 69, Number 208 (Thursday, October 28, 2004)]
[Rules and Regulations]
[Pages 62944-62990]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 04-23648]



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Part II





Department of the Interior





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Fish and Wildlife Service



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50 CFR Part 17



Endangered and Threatened Wildlife and Plants; Designation of Critical 
Habitat for the Mariana Fruit Bat and Guam Micronesian Kingfisher on 
Guam and the Mariana Crow on Guam and in the Commonwealth of the 
Northern Mariana Islands; Final Rule

  Federal Register / Vol. 69, No. 208 / Thursday, October 28, 2004 / 
Rules and Regulations  

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DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service

50 CFR Part 17

RIN 1019-AI25


Endangered and Threatened Wildlife and Plants; Designation of 
Critical Habitat for the Mariana Fruit Bat and Guam Micronesian 
Kingfisher on Guam and the Mariana Crow on Guam and in the Commonwealth 
of the Northern Mariana Islands

AGENCY: Fish and Wildlife Service, Interior

ACTION: Final rule.

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SUMMARY: We, the U.S. Fish and Wildlife Service (Service), are 
designating critical habitat for the Mariana fruit bat (Pteropus 
mariannus mariannus), Guam Micronesian kingfisher (Halcyon cinnamomina 
cinnamomina), and Mariana crow (Corvus kubaryi) pursuant to the 
Endangered Species Act, as amended (Act or ESA). We are designating 
approximately 376 acres (ac) (152 hectares (ha)) on the island of Guam 
for the Mariana fruit bat and the Guam Micronesian kingfisher. For the 
Mariana crow, we are designating approximately 376 ac (152 ha) on the 
island of Guam and approximately 6,033 ac (2,442 ha) on the island of 
Rota in the Commonwealth of the Northern Mariana Islands (CNMI). On 
Guam, the Mariana fruit bat, Mariana crow, and Guam Micronesian 
kingfisher critical habitat unit boundaries are identical. On Rota, 
critical habitat is designated only for the Mariana crow. Counting 
identical or overlapping units only once for all three species, we are 
designating approximately 6,409 ac (2,594 ha) on Guam and Rota.

DATES: This rule becomes effective November 29, 2004.

ADDRESSES: Comments and materials received, as well as supporting 
documentation used in the preparation of this final rule, will be 
available for inspection, by appointment, during normal business hours 
at the Pacific Islands Fish and Wildlife Office, U.S. Fish and Wildlife 
Service, 300 Ala Moana Boulevard, Room 3-122, Box 50088, Honolulu, HI 
96850. Copies of the final rule, addendum to the economic analysis, and 
draft economic analysis are available by writing to the above address 
or by connecting to the Service Internet Web site at http://pacificislands.fws.gov.

FOR FURTHER INFORMATION CONTACT: Gina Shultz, Assistant Field 
Supervisor, Pacific Islands Fish and Wildlife Office, U.S. Fish and 
Wildlife Service, 300 Ala Moana Boulevard, Room 3-122, Box 50088, 
Honolulu, HI 96850 (telephone: 808/792-9400; facsimile: 808/792-9581).

SUPPLEMENTARY INFORMATION:

Designation of Critical Habitat Provides Little Additional Protection 
to Species

    In 30 years of implementing the Act, the Service has found that the 
designation of statutory critical habitat provides little additional 
protection to most listed species, while consuming significant amounts 
of available conservation resources. The Service's present system for 
designating critical habitat has evolved since its original statutory 
prescription into a process that provides little real conservation 
benefit, is driven by litigation and the courts rather than biology, 
limits our ability to fully evaluate the science involved, consumes 
enormous agency resources, and imposes huge social and economic costs. 
The Service believes that additional agency discretion would allow our 
focus to return to those actions that provide the greatest benefit to 
the species most in need of protection.

Role of Critical Habitat in Actual Practice of Administering and 
Implementing the Act

    While attention to and protection of habitat is paramount to 
successful conservation actions, we have consistently found that, in 
most circumstances, the designation of critical habitat is of little 
additional value for most listed species, yet it consumes large amounts 
of conservation resources. Sidle (1987) stated, ``Because the ESA can 
protect species with and without critical habitat designation, critical 
habitat designation may be redundant to the other consultation 
requirements of section 7.'' Currently, only 445 species (36 percent) 
of the 1,244 listed species in the U.S. under the jurisdiction of the 
Service have designated critical habitat. We address the habitat needs 
of all 1,244 listed species through conservation mechanisms such as 
listing, section 7 consultations, the section 4 recovery planning 
process, the section 9 protective prohibitions of unauthorized take, 
section 6 funding to the States, and the section 10 incidental take 
permit process. The Service believes that it is these measures that may 
make the difference between extinction and survival for many species.
    We note, however, that a recent 9th Circuit judicial opinion, 
Gifford Pinchot Task Force v. United States Fish and Wildlife Service, 
has invalidated the Service's regulation defining destruction or 
adverse modification of critical habitat. We are currently reviewing 
the decision to determine what effect it may have on the outcome of 
consultations pursuant to Section 7 of the Act.

Procedural and Resource Difficulties in Designating Critical Habitat

    We have been inundated with lawsuits for our failure to designate 
critical habitat, and we face a growing number of lawsuits challenging 
critical habitat determinations once they are made. These lawsuits have 
subjected the Service to an ever-increasing series of court orders and 
court-approved settlement agreements, compliance with which now 
consumes nearly the entire listing program budget. This leaves the 
Service with little ability to prioritize its activities to direct 
scarce listing resources to the listing program actions with the most 
biologically urgent species conservation needs.
    The consequence of the critical habitat litigation activity is that 
limited listing funds are used to defend active lawsuits, to respond to 
Notices of Intent to sue relative to critical habitat, and to comply 
with the growing number of adverse court orders. As a result, listing 
petition responses, the Service's own proposals to list critically 
imperiled species, and final listing determinations on existing 
proposals are all significantly delayed. Litigation over critical 
habitat issues for species already listed and receiving the Act's full 
protection has precluded or delayed many listing actions nationwide.
    The accelerated schedules of court-ordered designations have left 
the Service with almost no ability to provide for adequate public 
participation or to ensure a defect-free rulemaking process before 
making decisions on listing and critical habitat proposals due to the 
risks associated with noncompliance with judicially-imposed deadlines. 
This in turn fosters a second round of litigation in which those who 
fear adverse impacts from critical habitat designations challenge those 
designations. The cycle of litigation appears endless, is very 
expensive, and in the final analysis provides relatively little 
additional protection to listed species.
    The costs resulting from the designation include legal costs, the 
cost of preparation and publication of the designation, the analysis of 
the economic effects and the cost of requesting and responding to 
public comment, and in some cases the costs of compliance with the 
National

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Environmental Policy Act, are all part of the cost of critical habitat 
designation. None of these costs result in any benefit to the species 
that is not already afforded by the protections of the Act enumerated 
earlier, and they directly reduce the funds available for direct and 
tangible conservation actions.

Background

    The Territory of Guam (Guam) is the largest and southernmost of the 
16 islands in the Mariana archipelago. Guam is located at 
13[deg]30[min] N and 145[deg] E and is approximately 30 miles (mi) (49 
kilometers (km)) long and 4 to 9 mi (7 to 15 km) wide. Rota is the 
fourth largest island in the Mariana archipelago and is located 30 mi 
(49 km) north of Guam at 14[deg]10[min] N and 145[deg] E. The island is 
approximately 11 mi (18 km) long and 2.5 to 4 mi (4 to 7 km) wide. We 
provided a detailed physical description for the islands of Guam and 
Rota in the proposed critical habitat designation (67 FR 63738).

Taxonomy, Life History, Distribution, Habitat, and Threats

Mariana Fruit Bat (or Fanihi)
    This species is a medium-sized fruit bat that historically 
inhabited all of the major islands in the Mariana archipelago. At 
present, only the Guam population of Mariana fruit bat is listed as 
endangered. A proposed rule to reclassify the Guam population of the 
species as threatened and also list the population in the CNMI as 
threatened was published on March 26, 1998 (63 FR 14641). The Mariana 
fruit bat typically roosts in colonies in native forest during the day 
and forages widely at night on nectar, fruit, and leaves (Wiles 1983). 
On Guam, the Mariana fruit bat was historically found throughout native 
forests. However, by 1995, the island population had been reduced to 
between 300 and 500 and was restricted primarily to forest on the 
northern tip of the island (Wiles et al. 1995), although there are 
occasional reports of bats from southern Guam around Fena Reservoir 
(Morton and Wiles 2002). Illegal hunting is believed to be one of the 
major causes of decline in this species, but predation by the brown 
treesnake (Boiga irregularis) also may be an important limiting factor 
(Wiles 1987). For additional information on the Mariana fruit bat and 
threats to the species, the reader is referred to the critical habitat 
proposed rule (67 FR 63738, October 15, 2002).
Mariana Crow (or Aga)
    The Mariana crow is a small, black crow endemic to the islands of 
Guam and Rota. The Mariana crow is omnivorous and typically nests in 
native forest (USFWS in prep.). On Guam, the crow historically was 
widely distributed in forest habitats, but densities were highest in 
limestone forests and lowest in grasslands and areas with human 
settlement (Jenkins 1983; Michael 1987). Similar to other Guam forest 
birds, the crow disappeared from most of the island with the spread of 
the brown treesnake and was restricted to the northern cliff forests by 
the mid 1970s. The population on Guam now numbers 12 birds, 10 of which 
were translocated from Rota or mainland zoos (Aguon 2002). On Rota, 
Mariana crows were considered relatively common and widely distributed 
in 1976 (Pratt et al. 1979). The first island-wide survey of crows on 
Rota in 1982 estimated a population of 1,318 individuals (Engbring et 
al. 1986). Crows still are distributed widely on Rota (Morton et al. 
1999), but results of several surveys indicate that the crow population 
has declined since the early 1980s. The primary factors in the decline 
of crows on Rota are uncertain; however, habitat loss and degradation, 
human persecution, and predation by introduced rats may be factors 
(USFWS in prep.). For additional information on the Mariana crow and 
threats to the species the reader is referred to the critical habitat 
proposed rule (67 FR 63738, October 15, 2002).
Guam Micronesian Kingfisher (or Sihek)
    The Guam Micronesian kingfisher is a forest-dwelling kingfisher 
endemic to Guam. The Guam Micronesian kingfisher preys on insects and 
small vertebrates and nests in cavities excavated in soft, rotten wood 
(Jenkins 1983; Marshall 1989). The Guam subspecies was common 
throughout Guam as recently as 1945 (Marshall 1949), and was found 
throughout most forest types (Jenkins 1983). Up to 3,000 birds were 
recorded in 1981 (Engbring and Ramsey 1984), but the kingfisher 
declined rapidly and now is extinct in the wild. However, a captive 
population of 63 birds has been established and is maintained at 11 
zoos in the mainland United States and by the Guam Division of Aquatic 
and Wildlife Resources (B. Bahner, National Zoological Association, in 
litt. 2003). The primary factor in the decline of the Guam Micronesian 
kingfisher was predation by the introduced brown treesnake (Savidge 
1986, 1987). For additional information on the Guam Micronesian 
kingfisher and threats to the species the reader is referred to the 
critical habitat proposed rule (67 FR 63738, October 15, 2002).

Previous Federal Action

    On October 15, 2002, we published a proposed rule to designate 
critical habitat for the Mariana fruit bat, Mariana crow, and Guam 
Micronesian kingfisher (67 FR 63738). In that proposed rule, we 
included a detailed summary of the previous Federal actions completed 
prior to the publication of the proposal. The proposed critical habitat 
consisted of approximately 24,803 ac (10,037 ha) in two units on the 
island of Guam for the Mariana fruit bat and Guam Micronesian 
kingfisher. For the Mariana crow, we proposed designating approximately 
23,004 ac (9,309 ha) in two units on the island of Guam and 
approximately 6,084 ac (2,462 ha) in one unit on the island of Rota in 
the CNMI. We determined that designation of critical habitat would not 
be prudent for the little Mariana fruit bat (Pteropus tokudae), Guam 
broadbill (Myiagra freycineti), and Guam bridled white-eye (Zosterops 
conspicillatus conspicillatus) because all three species likely are 
extinct. Also, on February 23, 2004, we published a final rule 
delisting the Guam broadbill due to extinction (69 FR 8116). In the 
proposed rule, we included a detailed summary of the previous Federal 
actions completed prior to publication of the proposal. We now provide 
updated information on the actions we completed since the proposed 
critical habitat designation.
    On October 18, 2002, we mailed the proposed rule and a fact sheet 
to all interested parties. The public comment period was open for 60 
days until December 15, 2002. On October 23, 2002, we held a public 
meeting on Guam at the Tamuning Community Center to provide information 
and promote discussion about critical habitat designation. The meeting 
was attended by 53 people, not including Service staff. On October 24, 
2002, we also held a public meeting on Rota at the Rota Resort and 
Country Club. The meeting was attended by 6 people, not including 
Service staff. On November 6, 2002, we held a public hearing on Rota at 
the Rota Resort and Country Club. The hearing was attended by 12 
people, and 8 people gave oral testimony. On November 7, 2002, we held 
a public hearing on Guam in Tumon at the Outrigger Guam Resort. This 
hearing was attended by 50 people, and 20 people presented oral 
testimony. On December 5, 2002, we published a notice in the Federal 
Register and issued a press release announcing extension of the public 
comment period and availability of the draft economic analysis for the 
proposed designation of

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critical habitat for the Mariana fruit bat, Mariana crow, and Guam 
Micronesian kingfisher (67 FR 72407). The Federal Register notice was 
mailed to interested parties on December 6, 2002. The comment period 
was open for an additional 30 days until January 6, 2003. On January 
14, 2003, the Service met with a delegation from the Mariana Public 
Lands Authority (CNMI) to discuss concerns about critical habitat. On 
January 28, 2003, we published a notice to reopen the comment period 
until February 18, 2003, due to hardships caused by Supertyphoon 
Pongsona on Guam and Rota (68 FR 4159). The Federal Register notice was 
mailed to all interested parties on the day of publication.
    On May 30, 2003, the Government of Guam filed a motion to extend 
the deadline for publication of the final rule to allow time to develop 
an alternative to critical habitat designation on Guam. The Government 
of Guam stated that they did not have adequate time to develop these 
alternatives due to a recent change in administration and hardships 
encountered as a result of Typhoon Chataan and Supertyphoon Pongsona. 
On June 13, 2003, the Guam District Court extended the deadline for 
publication ``indefinitely'' and set a status conference for October 7, 
2003. On June 23, 2003, the Plaintiffs appealed the district court's 
June 13, 2003, order to the 9th Circuit. On October 7, 2003, the Guam 
District Court held a status conference in which the Government of Guam 
requested a continuance of one month. On October 16, 2003, the Guam 
District Court denied the request for further continuance and ruled 
that it would take no further action while the case was on appeal. The 
Plaintiffs withdrew their appeal, and on January 7, 2004, the U.S. 
Court of Appeals for the Ninth Circuit dismissed the appeal and 
returned the case to the Guam District Court.
    In March and April 2004, a joint stipulation and order to finalize 
the critical habitat for the Mariana fruit bat, Mariana crow, and Guam 
Micronesian kingfisher were agreed to and approved by the Guam District 
Court. The Government of Guam submitted their proposed alternative to 
critical habitat to the Service on April 5, 2004. On June 2, 2004, we 
published a notice in the Federal Register reopening the comment period 
on the proposed rule until July 19, 2004, to allow interested parties 
additional time to consider and comment on the Government of Guam's 
proposal (69 FR 31073).

Critical Habitat

    Critical habitat is defined in section 3(5)(A) of the Act as--(i) 
the specific areas within the geographic area occupied by a species, at 
the time it is listed in accordance with the Act, on which are found 
those physical or biological features (I) essential to the conservation 
of the species and (II) that may require special management 
considerations or protection; and, (ii) specific areas outside the 
geographic 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 (16 U.S.C. 1532(5)(A)). ``Conservation,'' as defined by the 
Act, means the use of all methods and procedures that are necessary to 
bring an endangered or a threatened species to the point at which 
listing under the Act is no longer necessary (16 U.S.C. 1532 (3)).
    Critical habitat receives protection under section 7 of the Act 
which requires Federal agencies, including the Service, to ensure that 
actions they fund, authorize, or carry out are not likely to destroy or 
adversely modify critical habitat. In our regulations at 50 CFR 402.2, 
we define destruction or adverse modification as ``a direct or indirect 
alteration that appreciably diminishes the value of critical habitat 
for both the survival and recovery of a listed species. Such 
alterations include, but are not limited to: Alterations adversely 
modifying any of those physical or biological features that were the 
basis for determining the habitat to be critical.'' As a result of 
Federal appeals court decisions ruling this regulation invalid, we are 
currently reviewing the regulatory definition of adverse modification 
in relation to the conservation of the species.
    Section 7 also requires conferences on Federal actions that are 
likely to result in the destruction or adverse modification of proposed 
critical habitat. Aside from the added protection that may be provided 
under section 7, the Act does not provide other forms of regulatory 
protection to lands designated as critical habitat.
    In order to qualify for a critical habitat designation, the area 
must be ``essential to the conservation of the species.'' Critical 
habitat designations identify, to the extent known using the best 
scientific and commercial data available, habitat areas that provide 
essential life cycle needs of the species (i.e., areas on which are 
found the primary constituent elements, as defined at 50 CFR 
424.12(b)). Section 3(5)(C) of the Act states that not all areas that 
can be occupied by a species should be designated as critical habitat 
unless the Secretary determines that all such areas are essential to 
the conservation of the species. Our regulations (50 CFR 424.12(e)) 
also state that, ``[t]he Secretary shall designate as critical habitat 
areas outside the geographical area presently occupied by a species 
only when a designation limited to its present range would be 
inadequate to ensure the conservation of the species.''
    Section 4(b)(2) of the Act, as amended under the National Defense 
Authorization Act (Public Law No: 108-136), requires that we take into 
consideration the economic impact, the impact on national security, and 
any other relevant impact, of specifying any particular area as 
critical habitat. We may exclude areas from critical habitat 
designation when the benefits of exclusion outweigh the benefits of 
including the areas within critical habitat, provided the exclusion 
will not result in extinction of the species.
    Our Policy on Information Standards Under the Endangered Species 
Act, published on July 1, 1994 (59 FR 34271), provides criteria, 
establishes procedures, and provides guidance to ensure that decisions 
made by the Service represent the best scientific and commercial data 
available. It requires that our biologists, to the extent consistent 
with the Act and with the use of the best scientific and commercial 
data available, use primary and original sources of information as the 
basis for recommendations to designate critical habitat. When 
determining which areas are critical habitat, a primary source of 
information could be the listing package for the species. Additional 
information may be obtained from a recovery plan, articles in peer-
reviewed journals, conservation plans developed by States and counties, 
scientific status surveys and studies, and biological assessments or 
other unpublished materials.
    Critical habitat designations do not signal that habitat outside 
the designation is unimportant to the Mariana fruit bat, Guam 
Micronesian kingfisher, and Mariana crow. Areas outside the critical 
habitat designation will continue to be subject to conservation actions 
that may be implemented under section 7(a)(1), and to the regulatory 
protections afforded by the section 7(a)(2) jeopardy standard and the 
section 9 take prohibition, as determined on the basis of the best 
available information at the time of the action. We specifically 
anticipate that federally funded or assisted projects affecting listed 
species outside their designated critical habitat areas may still 
result in jeopardy findings in some

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cases. Similarly, critical habitat designations made on the basis of 
the best available information at the time of designation will not 
control the direction and substance of future recovery plans, habitat 
conservation plans, or other species conservation planning efforts if 
new information available to these planning efforts calls for a 
different outcome.

Methods

    As required by the Act and regulations (section 4(b)(2) and 50 CFR 
424.12), we used the best scientific information available to identify 
areas that contain the physical and biological features that are 
essential for the conservation of the Mariana fruit bat, Guam 
Micronesian kingfisher, and Mariana crow. This information included: 
Peer-reviewed scientific publications (e.g. Baker 1951; Jenkins 1983; 
Wiles et al. 1995; National Research Council (NRC) 1997); published and 
draft revised recovery plans (USFWS 1990a, 1990b, 2004a, in prep); the 
final listing rule (49 FR 33881); unpublished reports by the Guam 
Division of Aquatic and Wildlife Resources (GDAWR), CNMI Division of 
Fish and Wildlife (DFW), and the Service (e.g., Wiles 1982a; Engbring 
and Ramsey 1984; Morton 1996; Morton et al. 1999); aerial photographs 
and satellite imagery of Guam and Rota; personal communications with 
scientists and land managers familiar with the species and habitats; 
and comments received during public comment periods and in response to 
critical habitat outreach packages. Specific information we used from 
these sources includes estimates of historic and current distribution, 
abundance, and territory sizes for the three species, as well as data 
on resource and habitat requirements. From recovery plans, we 
considered the recovery objectives and the assessments of the habitat 
necessary to meet these objectives, as well as life history 
information.

Primary Constituent Elements

    In accordance with section 3(5)(A)(i) of the Act and regulations at 
50 CFR 424.12, in determining which areas to propose as critical 
habitat, we are required to consider those physical and biological 
features that are essential to the conservation of the species and that 
may require special management considerations or protection. Such 
features are termed ``primary constituent elements'' and include, but 
are not limited to: Space for individual and population growth and for 
normal behavior; food, water, air, light, minerals and other 
nutritional or physiological requirements; cover or shelter; sites for 
nesting and rearing of offspring; and habitats that are protected from 
disturbance and are representative of the historical, geographical and 
ecological distributions of the species.
    The primary constituent elements for the bat and both of the birds 
can be found in limestone, secondary, ravine, swamp, agricultural, and 
coastal forests on Guam and Rota that exhibit the biotic and structural 
characteristics necessary for foraging, sheltering, roosting, nesting, 
and rearing of young of the Mariana fruit bat, Guam Micronesian 
kingfisher, and Mariana crow on Guam, and for these same life functions 
of the crow on Rota. Guam and Rota experience a high frequency of 
severe storms, and these regularly and significantly alter forest 
structure (NRC 1997). Therefore, sufficient habitat area is necessary 
to absorb the variable impacts of these natural disturbances and still 
maintain the integrity of the primary constituent elements to support 
fruit bat, kingfisher, and crow populations. Specific details of 
primary constituent elements for each species are described below.
    Mariana fruit bat: This species feeds on a variety of plant 
material but is primarily frugivorous (Wiles and Fujita 1992). 
Specifically, Mariana fruit bats forage on the fruit of at least 28 
plant species, the flowers of 15 species, and the leaves of 2 plant 
species (Wiles and Fujita 1992). Some of the plants used for foraging 
include Artocarpus spp. (breadfruit), Carica papaya (papaya), Cycas 
circinalis (fadang), Ficus spp. (figs), Pandanus tectorius (kafu), 
Cocos nucifera (coconut), and Terminalia catappa (talisai). Many of 
these plant species are found in a variety of forested habitats on Guam 
including limestone, ravine, coastal, and secondary forests (Stone 
1970; Raulerson and Rhinehart 1991).
    During the day, Mariana fruit bats roost in groups or colonies and 
occasionally alone (Wiles 1987; Pierson and Rainey 1992). These roost 
sites are an important aspect of their biology because they are used 
for sleeping, grooming, breeding, and intra-specific interactions 
(USFWS 1990a). Published reports of roost sites on Guam indicate these 
sites occur in mature limestone forest and are found within 328 ft (100 
m) of clifflines that are 260 to 590 ft (80 to 180 m) tall (USFWS 
1990a). On Guam, Mariana fruit bats prefer to roost in mature fig and 
Mammea odorata (chopak) trees but will also roost in other tree species 
such as Casuarina equisetifolia (gago), Macaranga thompsonii (pengua), 
Guettarda speciosa (panao), and Neisosperma oppositifolia (fagot) 
(Wheeler and Aguon 1978; Wiles 1981, 1982b). On other islands in the 
Mariana archipelago, Mariana fruit bats have been observed in secondary 
forest and gago groves (Glass and Taisacan 1988; Worthington and 
Taisacan 1996; Worthington et al. 2001). Factors involved in roost site 
selection are not clear, but data from Guam indicate that some sites 
may be selected for their inaccessibility by humans and thus limited 
human disturbance. Fruit bats will abandon roost sites if disturbed and 
have been reported to move to new locations up to 6 mi (10 km) away 
(USFWS 1990a).
    In summary, the primary constituent elements required by the 
Mariana fruit bat for the biological needs of foraging, sheltering, 
roosting, and rearing of young are found in areas supporting limestone, 
secondary, ravine, swamp, agricultural, and coastal forests composed of 
native and introduced plant species. These forest types provide the 
primary constituent elements of:
    (1) Plant species used for foraging, such as breadfruit, papaya, 
fadang, fig, kafu, coconut palm, and talisai; and
    (2) Remote locations, often within 328 ft (100 m) of clifflines 
that are 260 to 590 ft (80 to 180 m) tall, with limited exposure to 
human disturbance and that contain mature fig, chopak, gago, pengua, 
panao, fagot, and other tree species that are used for roosting and 
reproductive activity.
    Mariana crow: Historically, the distribution of Mariana crows among 
habitats was similar on Guam and Rota. Crows were known to use 
secondary, coastal, ravine, and agricultural forests, including coconut 
plantations (Seale 1901; Stophlet 1946; Marshall 1949; Baker 1951; 
Jenkins 1983), but all evidence indicates they were most abundant in 
native limestone forests (Michael 1987; Morton et al. 1999). Mariana 
crow nests on Guam have been found in 11 tree genera, all but one of 
which are native, but most nests are located high in emergent fig or 
Elaeocarpus joga (yoga) trees (Morton 1996; C. Aguon, GDAWR, unpubl. 
data).
    On Rota, crows use both mature and secondary limestone forests 
(Morton et al. 1999), but not exclusively (M. Lusk and E. Taisacan 
unpubl. data). Of 156 nest sites on Rota, 39 percent and 42 percent 
were in mature and secondary limestone forest, respectively (Morton et 
al. 1999). Between 1992 and 1994, 90 percent (n = 115) of observations 
of perching crows on Rota were in native trees, primarily in middle to 
low heights of the canopy (M. Lusk and E. Taisacan unpubl. data). 
Mariana crows nested in 20 tree genera on Rota (Morton et al.

[[Page 62948]]

1999). Of 161 nest trees found during 1996-99, 63 percent were of four 
species: fagot, Eugenia reinwardtiana (a abang), Intsia bijuga (ifit), 
and Premna obtusifolia (ahgao) (Morton et al. 1999). Individual nest 
trees averaged approximately 7 in (16.9 cm) diameter at breast height 
and 28.5 ft (8.7 m) high. Canopy cover over nest sites averaged 93 
percent and was never less than 79 percent. Although 18 percent of the 
forested area of Rota is tangantangan or some other species of 
introduced tree (Falanruw et al. 1989), no crow nests have been found 
in any nonnative tree species. Nests were located at least 950 ft (290 
m) from the nearest road and 203 ft (62 m) from the nearest forest 
edge. The distances from edges strongly suggest that nesting crows are 
sensitive to disturbance by humans (Morton et al. 1999). No detailed 
information is available on historical nest site selection by crows on 
Guam, but the remaining crows on Guam nest and forage only in primary 
or mature limestone forest.
    On Rota, Morton et al. (1999) found that breeding crows in six 
study areas averaged one pair per 50 ac (22 ha) of forested habitat, 
and each territory was dominated by native forest. Pair densities 
ranged from one per 91 ac (37 ha) in relatively fragmented forest, to 
as high as one pair per 30 ac (12 ha) in mostly intact limestone forest 
along a coastal terrace. Established pairs occupy territories 
throughout the year but only aggressively defend them from July through 
January.
    In addition to habitat for breeding territories, Mariana crows also 
require habitat for juvenile dispersal. When juvenile Mariana crows 
leave the nest, they are typically tended by their parents until the 
following breeding season, a period that ranges from 3 to 18 months 
(Morton et al. 1999). After this parental attendance period, these 
juveniles enter the non-breeding population of Mariana crows until they 
are recruited into the adult population at approximately three years of 
age (Morton et al. 1999). Little research has been done on the non-
breeding population of crows and their habitat needs, but the 
territoriality of breeding adults and the time required before 
juveniles enter the breeding population indicate that foraging habitat 
outside established territories is needed to maintain juvenile Mariana 
crows.
    Mariana crows may forage at any height in the forest or on the 
ground (Jenkins 1983; Tomback 1986). These crows forage in at least 18 
tree genera, most of which are native (Jenkins 1983; Tomback 1986; C. 
Aguon unpubl. data). Mariana crows are omnivorous and have been 
observed feeding on a variety of native and nonnative invertebrates, 
reptiles, young rats, and birds' eggs, as well as on the foliage, buds, 
fruits, and seeds of at least 26 plant species (Jenkins 1983; Tomback 
1986; Michael 1987; C. Aguon unpubl. data).
    In summary, the primary constituent elements required by the 
Mariana crow for the biological needs of foraging, sheltering, 
roosting, nesting, and rearing of young are found in areas that support 
limestone, secondary, ravine, swamp, agricultural, and coastal forests 
composed of native and introduced plant species. These forest types 
provide the primary constituent elements of:
    (1) Emergent and subcanopy trees with dense cover for breeding such 
as fagot, pengua, ifit, ahgao, aabang, fig, yoga, and Tristiropsis 
obtusangula (faniok);
    (2) Sufficient area of predominantly native limestone forest to 
allow nesting at least 950 ft (290 m) from the nearest road and 203 ft 
(62 m) from the nearest forest edge and to support Mariana crow 
breeding territories (approximately 30 to 91 ac (12 to 37 ha)) and 
foraging areas for nonbreeding juvenile crows; and
    (3) Standing dead trees and plant species for foraging, such as 
Aglaia mariannensis (maypunayo), breadfruit, coconut palm, fagot, 
Hibiscus tiliaceus (pago), ifit, tangantangan, Ochrosia mariannensis 
(langiti), kafu, ahgao, fig, and yoga.
    Guam Micronesian kingfisher: Jenkins (1983) recorded the Guam 
Micronesian kingfisher nesting and foraging in northern Guam in mature 
limestone forest, secondary forests, and coastal forests dominated by 
coconut trees. Kingfishers also were found historically in southern 
Guam in ravine and coastal forests (Jenkins 1983). Few data exist about 
specific kingfisher nest sites on Guam, but in one study, nest sites in 
northern Guam were found in native limestone forest, and the location 
of these sites within the forest was correlated with closed canopy 
cover and dense understory vegetation (Marshall 1989). Recent studies 
of the Pohnpei Micronesian kingfisher (Halcyon cinnamomina 
reichenbachii) have documented that this subspecies also occurs in a 
wide range of forest types; however, territories of all 14 breeding 
pairs studied on Pohnpei included at least several hectares of mature 
native rainforest (D. Kesler, pers. comm., 2002).
    Micronesian kingfishers are obligate cavity nesters and require 
specific substrates for excavating nest cavities. On Guam, Marshall 
(1989) found that kingfishers excavated nest cavities in relatively 
soft, decaying wood in standing dead trees, including faniok, Pisonia 
grandis (umumu), breadfruit, fig, and coconut palm, and in the mud 
nests of Nasutitermes spp. termites and the root masses of epiphytic 
ferns. All nest cavities found in trees were in large-diameter trees 
(average diameter at breast height (dbh) 16.8  5.0 in (42.7 
 12.7 cm)), and these trees contained an average of 19 
excavations, most of which were incomplete (Marshall 1989). Multiple 
excavations in suitable nest trees suggest both the importance of these 
trees as nest sites and the importance of excavation in the 
kingfishers' courtship and nesting behavior (Jenkins 1983). The links 
between courtship behavior, excavation activity, and nest substrate 
requirements have been well documented in the captive population of 
this species as well (Bahner et al. 1998; S. Derrickson, Conservation 
Research Center, in litt. 2002). Marshall (1989) concluded that the 
population density of kingfishers on Guam may be limited by the 
availability of nest sites.
    Guam Micronesian kingfishers maintain year-round territories, which 
they aggressively defend (Jenkins 1983). Nothing is known about the 
territory size requirements of Micronesian kingfishers on Guam, but 
research on the Pohnpei subspecies indicates that territory sizes in 
upland forest are approximately 25 ac (10 ha) (D. Kesler, pers. comm., 
2001).
    Guam Micronesian kingfishers feed both on invertebrates and small 
vertebrates, including insects, segmented worms, hermit crabs, skinks, 
geckos, and possibly other small vertebrates (Marshall 1949; Baker 
1951; Jenkins 1983). This species typically forages by perching 
motionless on exposed perches and swooping down to capture prey on the 
ground (Jenkins 1983). Guam kingfishers also will capture prey from 
foliage and have been observed gleaning insects from tree bark (Maben 
1982). Marshall (1989) observed no kingfishers foraging in dead trees.
    In summary, the primary constituent elements required for the Guam 
Micronesian kingfisher for the biological needs of foraging, 
sheltering, roosting, nesting, and rearing of young are found in areas 
that support limestone, secondary, ravine, swamp, agricultural, and 
coastal forests containing native and introduced plant species. These 
forest types include the primary constituent elements of:
    (1) Closed canopy and well-developed understory vegetation; large 
(minimum of approximately 17 in (43 cm) dbh), standing dead trees 
(especially faniok, umumu, breadfruit, fig, and coconut palm); mud 
nests of Nasutitermes spp.

[[Page 62949]]

termites; and root masses of epiphytic ferns for breeding;
    (2) Sufficiently diverse structure to provide exposed perches and 
ground surfaces, leaf litter, and other substrates that support a wide 
range of vertebrate and invertebrate prey species for foraging 
kingfishers; and
    (3) Sufficient overall breeding and foraging area to support 
kingfisher territories of approximately 25 ac (10 ha) each.

Criteria Used To Identify Critical Habitat

    We used several criteria to identify and select lands for 
designation as critical habitat. For the Mariana fruit bat (Guam only) 
and Mariana crow, we began with all areas that are currently occupied. 
The Guam subspecies of Micronesian kingfisher is currently extirpated 
in the wild, so no habitat currently is occupied. We then examined 
unoccupied forested lands on Guam containing the primary constituent 
elements that are needed for the conservation of each species (see 
explanation below). We identified which unoccupied areas on Guam were 
needed for the conservation of each species using recovery habitat 
identified in recovery plans and information on the historical 
distribution of each species. Within the area of historical 
distribution, we gave preference to lands that provide the largest 
tracts of native forest and were more recently occupied by each 
species. We determined the boundaries of critical habitat units by the 
extent of suitable forest containing the primary constituent elements. 
The location of these suitable forests in many areas coincided with the 
boundaries of military reservations, National Wildlife Refuges, and 
conservation areas on Guam. We also included some small non-forested 
areas interspersed with forested areas because of their potential for 
reforestation. We did not include urban lands and agricultural fields 
because they generally do not contain the primary constituent elements 
and restoration to native forest is extremely unlikely.
    On Guam, we identified two units for each species using the 
guidelines provided by the Mariana fruit bat recovery plan (1990a), 
Guam forest bird recovery plan (1990b), and recommendations by our 
Mariana crow recovery team for the draft revised recovery plan (USFWS 
in prep). We also used the recommendation of the recovery team to 
identify one unit for the Mariana crow on Rota (USFWS in prep). For the 
conservation of the Mariana crow, current recovery recommendations and 
the draft revised recovery plan (USFWS in prep) call for established 
populations in northern Guam, in southern Guam, and on Rota.
    Establishing two geographically separated populations on Guam is 
important to decrease the risk of extirpation of the species as a 
result of localized, stochastic events, such as typhoons and disease 
outbreaks (Dobson and May 1986; NRC 1997). A long-accepted view 
developed from ecological research is that the existence of more than 
one population increases the long-term likelihood of species' 
persistence (Raup 1991; Meffe and Carroll 1997).
    Within the designated critical habitat unit boundaries, only lands 
containing one or more of the primary constituent elements are 
designated as critical habitat. Existing features and structures within 
the boundaries of the mapped units, such as buildings, roads, 
aqueducts, antennas, water tanks, agricultural fields, paved areas, 
lawns, and other urban landscaped areas do not contain the primary 
constituent elements and therefore are not designated as critical 
habitat.
    Section 3(5)(A)(ii) of the Act provides that areas outside the 
geographical area currently occupied by the species may meet the 
definition of critical habitat upon determination that they are 
essential for conservation of the species. We included unoccupied 
habitat in the designated critical habitat for the Guam Micronesian 
kingfisher and Mariana crow on Guam because, as explained below, the 
currently occupied habitat alone is not sufficient to provide for the 
conservation of the species.
    Mariana fruit bat: Although the current population of Mariana fruit 
bats on Guam is small and most bats roost in a limited area, the 
foraging behavior and diverse diet of the fruit bats cause them to use 
most of the island for foraging, as documented by Wiles et al. (1995). 
Thus, all of the designated critical habitat for this species is used 
for foraging and/or roosting and is considered occupied.
    Mariana crow: The critical habitat unit for the Mariana crow on 
Rota reflects the goal of establishing and maintaining a population of 
at least 75 territorial breeding pairs on Rota and our recovery team's 
estimation of areas necessary to meet this goal (USFWS in prep). The 
lands designated as critical habitat for the Mariana crow on Rota 
support at least 63 known breeding pairs and includes areas that are 
believed to support an additional 25 pairs (Morton et al. 1999). We 
included all areas identified by our recovery team as high priority, 
and incorporated lower priority areas known or believed to harbor crows 
to provide additional habitat to support the non-breeding crow 
population and create greater connectivity between high-priority areas.
    On Guam, the distribution and abundance of Mariana crows have 
declined precipitously over the last three decades (USFWS in prep.). 
Currently, the population consists of 10 birds occupying approximately 
1,920 ac (777 ha) located in the munitions storage area of Andersen Air 
Force Base in northern Guam. This current distribution represents an 85 
percent reduction in range from the estimated distribution in 1994 
(12,633 ac; 5,112 ha) reported by Wiles et al. (1995).
    Mariana crows are territorial; each pair defends an area of a size 
determined by forest type and structure (Morton et al. 1999). The 
maximum density or carrying capacity of crow pairs in a particular area 
depends on both habitat quality (for foraging and breeding) and the 
spatial arrangement of territories. On Rota, Mariana crow territories 
ranged from 30 to 91 ac (12 to 37 ha) in size with an average of one 
pair per 54 ac (22 ha) (Morton et al. 1999). The area currently 
occupied on Guam (1,920 ac; 777 ha) can support only about 35 pairs, 
which is fewer than the 75 pairs recommended by our recovery team and 
therefore is too small to support a Mariana crow population large 
enough to be considered safe from extinction.
    Because of the territorial nature of the Mariana crow, its small 
total population size, limited range, vulnerability to environmental 
threats, and recovery goals drafted for the species, inclusion of 
certain currently unoccupied areas on Guam that contain the primary 
constituent elements is essential to the conservation of the species. 
Recovery to the point where listing is no longer necessary will require 
restoration of Mariana crows on Guam through natural dispersal, 
translocation, and/or release of captive birds in areas that were 
formerly inhabited but that are not currently occupied. Unoccupied 
areas adjacent to currently occupied areas are needed to allow 
expansion of the existing population and help alleviate threats 
associated with small population size. Specifically, the 10 crows 
currently found on Andersen Air Force Base in northern Guam do not 
constitute a viable population of this species. These animals are 
unlikely to increase their numbers to a self-sustaining level in the 
area they presently occupy, even with human intervention. For this 
population to persist over the long term, it must

[[Page 62950]]

expand onto adjacent lands that now are unoccupied.
    Guam Micronesian kingfisher: The last wild kingfisher on Guam was 
seen in 1988, and this subspecies is believed extirpated from the wild 
(Wiles et al. 2003). The total population now consists of 63 birds in 
11 captive breeding institutions in the mainland United States and by 
the Guam Division of Aquatic and Wildlife Resources (Bahner, in litt. 
2003). Because the Guam Micronesian kingfisher does not exist in the 
wild and all suitable habitat presently is unoccupied, inclusion of 
unoccupied areas containing the primary constituent elements is 
essential to the conservation of this species. Recovery to the point 
where the protection afforded by listing is no longer necessary will 
require restoration of the Guam Micronesian kingfisher through release 
of captive birds and subsequent natural dispersal into areas of Guam 
that formerly were inhabited.

Critical Habitat Designation

    Lands designated as critical habitat for the Mariana fruit bat, 
Mariana crow, and Guam Micronesian kingfisher all occur in one unit on 
Guam. Lands designated as critical habitat for the Mariana crow occur 
in one unit on Rota. The critical habitat units (and military, 
Government of Guam, and private lands on Guam excluded under sections 
4(a)(3), and 4(b)(2) of the ESA, as amended by Section 318 of the 
fiscal year 2004 National Defense Authorization Act) provide the full 
range of primary constituent elements needed by these three species, 
including a variety of undeveloped, forested areas that are used for 
foraging, roosting, shelter, nesting, and raising offspring. Designated 
critical habitat includes land under Federal, Commonwealth, and private 
ownership, with Federal lands being managed by the Department of the 
Interior. The approximate area and land ownership within each unit are 
shown in Table 1. Table 2 provides a summary of the total area 
identified as essential to the long-term conservation of the three 
species, the total area excluded from critical habitat designation, and 
the designated critical habitat on Guam and Rota.

                           Table 1.--Approximate Area (Acres, Hectares) of Designated Critical Habitat Areas by Land Ownership
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                          Federal gov't.   Local gov't.
                    Species                                        Unit                         \a\             \b\           Private          Total
--------------------------------------------------------------------------------------------------------------------------------------------------------
Mariana Fruit Bat..............................  Mariana Fruit Bat Unit: Guam...........          376 ac            0 ac            0 ac          376 ac
                                                                                                (152 ha)          (0 ha)          (0 ha)        (152 ha)
                                                 Total (Mariana fruit Bat)..............          376 ac            0 ac            0 ac          376 ac
                                                                                                (152 ha)          (0 ha)          (0 ha)        (152 ha)
Mariana Crow...................................  Unit A: Guam...........................          376 ac            0 ac            0 ac          376 ac
                                                                                                (152 ha)          (0 ha)          (0 ha)        (152 ha)
                                                 Unit B: Rota--Subunit 1................            0 ac        5,221 ac          447 ac        5,668 ac
                                                                                                  (0 ha)      (2,113 ha)        (181 ha)      (2,294 ha)
                                                 Unit B: Rota--Subunit 2................            0 ac          349 ac           16 ac          365 ac
                                                                                                  (0 ha)        (141 ha)          (7 ha)        (148 ha)
                                                 Total (Mariana Crow)...................          376 ac        5,570 ac          463 ac        6,409 ac
                                                                                                (152 ha)      (2,254 ha)        (188 ha)      (2,594 ha)
Guam Micronesian Kingfisher....................  Guam Micronesian Kingfisher Unit: Guam.          376 ac            0 ac            0 ac          376 ac
                                                                                                (152 ha)          (0 ha)          (0 ha)        (152 ha)
                                                 Total (Guam Micronesian Kingfisher)....          376 ac            0 ac            0 ac          376 ac
                                                                                                (152 ha)          (0 ha)          (0 ha)        (152 ha)
------------------------------------------------
        Total for all species (counting identical or overlapping units only once)                 376 ac        5,570 ac          463 ac        6,409 ac
                                                                                                (152 ha)      (2,254 ha)        (188 ha)     (2,594 ha)
--------------------------------------------------------------------------------------------------------------------------------------------------------
\a\ Federal lands are under the ownership or jurisdiction of the U.S. Fish and Wildlife Service.
\b\ Local lands are owned by and managed for the people of the Territory of Guam and the Commonwealth of the Northern Mariana Islands by the Chamorro
  Land Trust Commission and Marianas Public Land Authority, respectively.


Table 2.--Approximate Areas in Acres (ac) and Hectares (ha) of Essential
        Habitat, Excluded Areas, and Designated Critical Habitat
------------------------------------------------------------------------
                                      Guam                  Rota
------------------------------------------------------------------------
Area considered essential...  24,121 ac (9,761 ha)  6,033 ac (2,442 ha).
Area excluded under sections  23,745 ac (9,609 ha)  0 ac (0 ha).
 4(a)(3) and/or 4(b)(2) of
 the ESA, as amended by
 Section 318 of the fiscal
 year 2004 National Defense
 Authorization Act (Andersen
 Air Force Base;
 COMNAVMARIANAS Ordnance
 Annex and Communications
 Annex; Government of Guam
 lands; and private lands on
 Guam).
Final critical habitat......  376 ac (152 ha).....  6,033 ac (2,442 ha).
------------------------------------------------------------------------

    All of the designated critical habitat on Guam currently is 
occupied by the Mariana fruit bat. None of the critical habitat on Guam 
is currently occupied by the Mariana crow or Guam Micronesian 
kingfisher, but it was occupied historically. On Rota, the designated 
critical habitat is occupied by the Mariana crow.

Mariana Fruit Bat

    This unit consists of approximately 376 ac (152 ha) of land in the 
fee simple portion of the Guam National Wildlife Refuge. The vegetation 
in this unit consists of coastal, limestone, and secondary forests 
composed of native and introduced plant species and contains the full 
range of primary constituent elements needed for the conservation of 
the Mariana fruit bat.

[[Page 62951]]

This area is important because it contains areas used for foraging by 
the only known Mariana fruit bat colony on Guam. This area also 
contains roosting and foraging sites used by bats since 1981 (see Wiles 
et al. 1995 for details). This unit also encompasses essential 
conservation areas identified in the Mariana fruit bat recovery plan 
(USFWS 1990a).
    Excluded from designation (see ``Exclusions from Critical 
Habitat'') are 10,838 ac (4,386 ha) of Air Force lands, 7,977 ac (3,228 
ha) of Navy lands, 2,989 ac (1,210 ha) of Government of Guam lands, and 
1,941 ac (785 ha) of private lands in northern and southern Guam that 
were proposed as critical habitat in the October 15, 2002, proposed 
rule (67 FR 63738), leaving a final designation of 376 ac (816 ha). 
Although Air Force, Navy, Government of Guam, and private lands are 
excluded from final critical habitat designation, they still contribute 
to the conservation of the Mariana fruit bat.

Mariana Crow

Unit A: Guam
    Unit A consists of approximately 376 ac (152 ha) of land in the fee 
simple portion of the Guam National Wildlife Refuge. Unit A includes 
limestone, secondary, and coastal forests composed of native and 
nonnative plants and contains the full range of primary constituent 
elements needed for long-term conservation of the Mariana crow on Guam. 
This area includes lands in the 1994 historical distribution of Mariana 
crows in northern Guam (Wiles et al. 1995) and areas that contained 
crows in northern Guam in 1981 (Engbring and Ramsey 1984). Unit A was 
also identified by our Mariana crow recovery team as important recovery 
habitat in the draft revised Mariana crow recovery plan (USFWS in 
prep.).
    Excluded from designation (see ``Exclusions from Critical 
Habitat'') are 10,838 ac (4,386 ha) of Air Force lands, 7,977 ac (3,228 
ha) of Navy lands, 2,768 ac (1,121 ha) of Government of Guam lands, and 
1,941 ac (785 ha) of private lands in northern and southern Guam that 
were proposed as critical habitat in the October 15, 2002, proposed 
rule (67 FR 63738), leaving a final designation of 376 ac (152 ha). 
Although Air Force, Navy, Government of Guam, and private lands are 
excluded from final critical habitat designation, they still contribute 
to the conservation of the Mariana crow.
Unit B: Rota
    Unit B consists of approximately 6,033 ac (2,442 ha) of forested 
land encompassing much of the undeveloped areas on Rota. This area 
contains the Afatung Wildlife Management Area, I Chenchon Bird 
Sanctuary, and forested areas on public and private lands around the 
Sabana and Sinapalu plateaus. Unit B is composed of limestone, 
secondary, agricultural, coastal, and ravine forests consisting of 
native and nonnative plants and contains the full range of primary 
constituent elements needed for long-term conservation of the Mariana 
crow on Rota. This area includes the known breeding territories of at 
least 63 Mariana crow pairs and possibly those of an additional 25 
pairs (Morton et al. 1999). This area also includes the areas on Rota 
identified by our Mariana crow recovery team as important conservation 
areas in the draft revised Mariana crow recovery plan (USFWS in prep.).
    The critical habitat designated in Unit B consists of five 
sections. The first section includes the Afatung Wildlife Management 
Area in the Palii region and the forested areas in the Finata, Alaguan, 
and I Koridot regions. The second section includes the I Chenchon Bird 
Sanctuary and the forested areas in the I Chiugai and As Dudo regions 
of eastern Rota. The third section consists of much of the forested 
areas in the As Matmos, Mochong, Lalayak, Pekngasu, and I Batko 
regions, as well as the forested areas adjacent to the Rota Resort. The 
fourth section includes much of the forested areas in the Mananana, 
Uyulan Hulo, Sailgai Hulo, Gayauga, Lempanai, and Lupok regions. The 
fifth section includes much of the forested areas, as well as some of 
the grassland areas, in the Talakhaya and Gaonan regions of southern 
Rota. None of Unit B was excluded.

Guam Micronesian Kingfisher

    Designated critical habitat for the Guam Micronesian kingfisher 
consists of approximately 376 ac (152 ha) of land in the fee simple 
portion of the Guam National Wildlife Refuge. The vegetation in this 
designated unit consists of coastal, limestone, and secondary forests 
composed of native and introduced species that contain the full range 
of primary constituent elements required for the long-term conservation 
of the Guam Micronesian kingfisher in northern Guam. This unit includes 
forested areas along the northwestern coasts of the island that were 
occupied by Guam Micronesian kingfishers in the 1970s and early 1980s 
(Drahos 1977; Maben and Aguon 1980, 1981; Engbring and Ramsey 1984). 
This unit also encompasses essential conservation areas identified in 
the forest bird recovery plan for northern Guam (USFWS 1990b).
    Excluded from designation (see ``Exclusions from Critical 
Habitat'') are 10,838 ac (4,386 ha) of Air Force lands, 7,977 ac (3,228 
ha) of Navy lands, 2,989 ac (1,210 ha) of Government of Guam lands, and 
1,941 ac (785 ha) of private lands in northern and southern Guam that 
were proposed as critical habitat in the October 15, 2002, proposed 
rule (67 FR 63738), leaving a final designation of 376 ac (152 ha). 
Although Air Force, Navy, Government of Guam, and private lands are 
excluded from final critical habitat designation, they still contribute 
to the conservation of the Guam Micronesian kingfisher.

Effects of Critical Habitat Designation

Section 7 Consultation

    Section 7 of the Act requires Federal agencies, including the 
Service, to ensure that actions they fund, authorize, or carry out are 
not likely to destroy or adversely modify critical habitat. In our 
regulations at 50 CFR 402.2, we define destruction or adverse 
modification as ``a direct or indirect alteration that appreciably 
diminishes the value of critical habitat for both the survival and 
recovery of a listed species. Such alterations include, but are not 
limited to: Alterations adversely modifying any of those physical or 
biological features that were the basis for determining the habitat to 
be critical.'' We are currently reviewing the regulatory definition of 
adverse modification in relation to the conservation of the species.
    Section 7(a) of the Act requires Federal agencies, including the 
Service, 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 proposed or designated. Regulations 
implementing this interagency cooperation provision of the Act are 
codified at 50 CFR Part 402. Section 7(a)(4) of the Act requires 
Federal agencies to confer with us on any action that is likely to 
jeopardize the continued existence of a proposed species or result in 
destruction or adverse modification of proposed critical habitat. 
Conference reports provide conservation recommendations to assist the 
agency in eliminating conflicts that may be caused by the proposed 
action. The conservation recommendations in a conference report are 
advisory. If a species is listed or critical habitat is designated, 
section 7(a)(2) requires Federal agencies to ensure that activities 
they authorize, fund, or carry out are not likely to jeopardize the 
continued existence of such a species or to destroy or adversely modify 
its critical habitat. If a Federal action may affect a listed

[[Page 62952]]

species or its critical habitat, the responsible Federal agency (action 
agency) must enter into consultation with us. Through this 
consultation, the action agency ensures that the permitted actions do 
not destroy or adversely modify critical habitat.
    When we issue a biological opinion concluding that a project is 
likely to result in the destruction or adverse modification of critical 
habitat, we also provide reasonable and prudent alternatives to the 
project, if any are identifiable. ``Reasonable and prudent 
alternatives'' are defined at 50 CFR 402.02 as alternative actions 
identified during consultation that can be implemented in a manner 
consistent with the intended purpose of the action, that are consistent 
with the scope of the Federal agency's legal authority and 
jurisdiction, that are economically and technologically feasible, and 
that the Director believes would avoid destruction or adverse 
modification of critical habitat. Reasonable and prudent alternatives 
can vary from slight project modifications to extensive redesign or 
relocation of the project. Costs associated with implementing a 
reasonable and prudent alternative are similarly variable.
    Regulations at 50 CFR 402.16 require Federal agencies to reinitiate 
consultation on previously reviewed actions in instances where critical 
habitat is subsequently designated and the Federal agency has retained 
discretionary involvement or control over the action or such 
discretionary involvement or control is authorized by law. 
Consequently, some Federal agencies may request reinitiation of 
consultation or conference with us on actions for which formal 
consultation has been completed, if those actions may affect designated 
critical habitat or adversely modify or destroy proposed critical 
habitat.
    We may issue a formal conference report if requested by a Federal 
agency. Formal conference reports on proposed critical habitat contain 
an opinion that is prepared according to 50 CFR 402.14, as if critical 
habitat were designated. We may adopt the formal conference report as 
the biological opinion when the critical habitat is designated, if no 
substantial new information or changes in the action alter the content 
of the opinion (see 50 CFR 402.10(d)).
    Activities on Federal lands that may affect these species or their 
critical habitat will require section 7 consultation. Activities on 
private or State lands requiring a permit from a Federal agency, such 
as a permit from the U.S. Army Corps of Engineers under section 404 of 
the Clean Water Act, a section 10(a)(1)(B) permit from the Service, or 
some other Federal action, including funding (e.g., Federal Highway 
Administration or Federal Emergency Management Agency funding), will 
also continue to be subject to the section 7 consultation process. 
Federal actions not affecting listed species or critical habitat and 
actions on non-Federal and private lands that are not federally funded, 
authorized, or permitted do not require section 7 consultation.
    Section 4(b)(8) of the Act requires us to briefly evaluate and 
describe in any proposed or final regulation that designates critical 
habitat those activities involving a Federal action that may destroy or 
adversely modify such habitat, or that may be affected by such 
designation. Activities that may destroy or adversely modify critical 
habitat include those that appreciably reduce the value of critical 
habitat to the Mariana fruit bat, Mariana crow, and Guam Micronesian 
kingfisher. We note that such activities may also jeopardize the 
continued existence of the species.
    To properly portray the effects of critical habitat designation, we 
must first compare the section 7 requirements for actions that may 
affect critical habitat with the requirements for actions that may 
affect a listed species. Section 7 prohibits actions funded, 
authorized, or carried out by Federal agencies from jeopardizing the 
continued existence of a listed species or destroying or adversely 
modifying the listed species' critical habitat. Actions likely to 
``jeopardize the continued existence'' of a species are those that 
would appreciably reduce the likelihood of the species' survival and 
recovery. Actions likely to ``destroy or adversely modify'' critical 
habitat are those that would appreciably reduce the value of critical 
habitat to the listed species.
    Common to both definitions is an appreciable detrimental effect on 
both survival and recovery of a listed species. Given the similarity of 
these definitions, actions likely to destroy or adversely modify 
critical habitat would often result in jeopardy to the species 
concerned when the area of the proposed action is occupied by the 
species concerned.
    Federal agencies already consult with us on activities in areas 
currently occupied by the species to ensure that their actions do not 
jeopardize the continued existence of the species. These actions 
include, but are not limited to:
    (1) Actions that would result in removing, thinning, or destroying 
Mariana fruit bat, Guam Micronesian kingfisher, or Mariana crow forest 
habitat by burning, mechanical, chemical, or other means (e.g., 
woodcutting, grading, overgrazing, construction, road building, mining, 
herbicide application, etc.). These activities could eliminate habitat 
necessary for the growth and reproduction of these species.
    (2) Actions that would result in appreciably decreasing habitat 
value or quality through introduction or promotion of potential nest 
predators, disease or disease vectors, vertebrate or invertebrate food 
competitors, invasive plant species, forest fragmentation, overgrazing, 
augmentation of feral ungulate populations, water diversion or 
impoundment, groundwater pumping or other activities that alter water 
quality or quantity to an extent that affects vegetation structure, or 
activities that increase the risk of fire. These actions could 
eliminate or reduce the habitat necessary for the growth and 
reproduction of these species.
    We consider the Mariana fruit bat critical habitat unit to be 
occupied by the species because it is utilized by foraging and roosting 
Mariana fruit bats. We also consider the Mariana crow critical habitat 
Unit B on Rota to be occupied by the species because it is utilized by 
nesting and foraging Mariana crows. Federal agencies already consult 
with us on activities in areas currently occupied by the species or if 
the species may be affected by the action to ensure that their actions 
do not jeopardize the continued existence of the species.
    If you have questions regarding whether specific activities will 
likely constitute destruction or adverse modification of critical 
habitat, contact the Field Supervisor, Pacific Islands Fish and 
Wildlife Office (see ADDRESSES section). Requests for copies of the 
regulations on listed plants and animals, and inquiries about 
prohibitions and permits, may be addressed to the U.S. Fish and 
Wildlife Service, Division of Endangered Species, 911 N.E. 11th Ave., 
Portland, OR 97232-4181 (telephone 503/231-2063; facsimile 503/231-
6243).

Exclusions From Critical Habitat

Guam Lands Under U.S. Air Force Jurisdiction

    Section 4(a)(3) of the Act, as amended by Section 318 of the fiscal 
year 2004 National Defense Authorization Act (Public Law No: 108-136), 
states that the Secretary of the Interior shall not designate critical 
habitat on Department of Defense lands that are subject to an INRMP 
prepared under section 101 of the Sikes Act (16 U.S.C. 670a), if the 
Secretary determines the plan provides

[[Page 62953]]

a benefit to the species. Department of Defense lands may be excluded 
from critical habitat under section 4(a)(3) if they are subject to an 
operative INRMP which provides a benefit by addressing the maintenance 
or improvement of primary constituent elements important to the Mariana 
fruit bat, Mariana crow, and Guam Micronesian kingfisher.
    As previously explained, the primary cause of the decline and 
disappearance of native bird and bat species on Guam has been predation 
by nonnative species, especially the brown treesnake (Savidge 1986, 
1987; USFWS 1990a, 1990b, 2004a, in prep; Wiles et al. 1995). Habitat 
loss and degradation by a combination of development and suppression of 
forest growth by introduced ungulates also have contributed to the 
decline of native species in the Mariana archipelago. In addition to 
these other threats, hunting has had a significant impact on the 
Mariana fruit bat.
    The management actions needed to address these threats and ensure 
the survival and long-term conservation of the Mariana fruit bat, 
Mariana crow, and Guam Micronesian kingfisher are described in the 
recovery plans for these three species and other documents (USFWS 
1990a, 1990b, 2004a, in prep; Wiles et al. 1995; NRC 1997). Some of 
these management actions include: (1) Control brown treesnakes and 
other nonnative predators, and conduct research to develop methods for 
control over large areas and eradication; (2) conduct management 
activities, e.g., feral ungulate control and reforestation, which are 
necessary to protect and enhance existing essential habitat on Guam and 
Rota; (3) protect fruit bats from illegal hunting; and (4) reintroduce 
the Mariana crow and Guam Micronesian kingfisher to northern and 
southern Guam and establish self-sustaining populations.
    The Air Force completed a final INRMP for Andersen Air Force Base 
in February 2002 which was updated in December 2003 (Air Force 2003). 
This updated plan covers all Air Force lands included in Andersen Air 
Force Base in northern Guam. The long-term natural resource management 
goal of Andersen Air Force Base is to: ``[m]anage, conserve, protect, 
and enhance Andersen Air Force Base's natural and cultural resources 
and environmental quality in the best national interest, compatible 
with military operations and in accordance with the principles of 
multiple use and sustained yield (for harvestable resources). All 
natural resources management programs will be undertaken with a special 
emphasis on the protection and recovery of endangered and threatened 
species, and to perpetuate Guam's native biodiversity.''
    To achieve this goal, the INRMP for Air Force lands includes 
several projects that will maintain or benefit the Mariana fruit bat, 
Mariana crow, and Guam Micronesian kingfisher. These projects include: 
development and implementation of a Mariana fruit bat colony protection 
plan, area-wide brown treesnake trapping, construction of a cat barrier 
around Area 50, removal of feral ungulates from the Munitions Storage 
Area and Area 50, construction of ungulate exclosures in areas of high 
ecological value and removal of ungulates from these exclosures, 
monitoring of habitat regeneration in these exclosures, base-wide 
``habitat biodiversity monitoring,'' and public education on 
conservation issues. All of these actions have been developed through 
coordination with the Service.
    In addition, the Air Force has authorized the Guam Division of 
Aquatic and Wildlife Resources to release and monitor captive-reared 
Guam rails (Gallirallus owstoni; formerly extirpated) and translocate 
captive-reared Mariana crows on Andersen Air Force Base (Vice et al. 
2001; Radway 2003; USFWS in prep). In the past four years, 17 Mariana 
crows and 62 Guam rails have been released on Guam, all on Air Force 
lands (D. Vice, pers. comm.; USFWS in prep). In their INRMP, the Air 
Force also affirms its support for the eventual release of captive-bred 
Guam Micronesian kingfishers on their lands (Air Force 2003).
    The activities described above result in the following benefits to 
the Mariana fruit bat, Mariana crow, and Guam Micronesian kingfisher: 
(1) Significant reduction of treesnakes in the area currently occupied 
by Mariana crows on Guam, (2) progress toward more efficient methods 
for controlling brown treesnakes, (3) habitat enhancement for all three 
species, (4) potential increase in nest success for Mariana crows, (5) 
augmentation of the crow population on Guam, (6) increased knowledge of 
the crow's biology through monitoring, and (7) physical protection of 
the Mariana fruit bat colony on Andersen Air Force Base. The 
comprehensive list of ongoing and proposed management activities 
detailed in the INRMP (Air Force 2003) address management actions 
(predator control, protection and enhancement of essential habitat, 
protection of fruit bats from illegal hunting, and reintroduction and 
establishment of self-sustaining populations of these three species) 
that provide a significant conservation benefit to the species. Without 
these management actions on Andersen Air Force Base, the Mariana crow 
and Mariana fruit bat likely would be extirpated from Guam, and no 
suitable areas for reintroduction of the Guam Micronesian kingfisher 
would exist.
    In view of the benefit to the bat and birds of the foregoing 
management and stewardship actions detailed in the updated Andersen Air 
Force Base INRMP, the area is not included as critical habitat under 
Section 4(a)(3) of the Act, as amended by Section 318 of the fiscal 
year 2004 National Defense Authorization Act. Although these areas are 
not included from the final critical habitat designation, they remain 
essential for the conservation of the Mariana fruit bat, Mariana crow, 
and Guam Micronesian kingfisher, and management for the conservation of 
these species on Andersen Air Force Base is necessary to meet the 
overall recovery goals for these species.

Analysis of Impacts Under ESA Section 4(b)(2)

    Section 4(b)(2) of the Act, as amended by subsection (b) of Section 
318 of the fiscal year 2004 National Defense Authorization Act (Public 
Law No: 108-136), requires us to designate critical habitat on the 
basis of the best scientific and commercial information available, and 
to consider the economic, national security, and other relevant impacts 
of designating a particular area as critical habitat. We may exclude 
areas from critical habitat upon a determination that the benefits of 
such exclusions outweigh the benefits of specifying such areas as 
critical habitat. We cannot exclude such areas from critical habitat 
when such exclusion will result in the extinction of the species 
concerned.

Economic Impacts

    Following the publication of the proposed critical habitat 
designation on October 15, 2002, a draft economic analysis was prepared 
to evaluate the direct and indirect economic impact associated with the 
proposed designation, in accordance with recent court decisions, such 
as N.M. Cattlegrowers Ass'n v. U.S. Fish and Wildlife Serv., 248 F.3d 
1277 (10th Cir. 2001). The draft analysis was made available for review 
on December 5, 2002 (67 FR 72407). We accepted comments on the draft 
analysis until the comment period closed on January 6, 2003. We 
reopened the comment period on January 28, 2003, and accepted 
additional comments on the draft analysis until February 18, 2003 (68 
FR 4159).
    Our draft economic analysis evaluated the direct and indirect 
economic

[[Page 62954]]

impacts associated with our proposed critical habitat designation for 
the Mariana fruit bat, Mariana crow, and Guam Micronesian kingfisher on 
the island of Guam and the Mariana crow on the island of Rota over the 
next ten years. Direct impacts are those related to consultations under 
section 7 of the Act. They include the cost of completing the section 7 
consultation process and potential project modifications resulting from 
the consultation. Indirect impacts are secondary costs and benefits not 
directly related to compliance with the Act. Examples of indirect 
impacts include potential effects to property values and the cost of 
investigating the requirements resulting from a critical habitat 
designation.
    The categories of direct and indirect costs considered in the 
analysis included the costs associated with: (1) Conducting section 7 
consultations; (2) modifications to projects, activities, or land uses 
resulting from section 7 consultations; (3) uncertainty and public 
perceptions resulting from the designation of critical habitat, 
including potential effects on property values; and (4) the potential 
offsetting beneficial costs associated with critical habitat. The most 
likely economic effects of critical habitat designation are on 
activities funded, authorized, or carried out by a Federal agency 
(i.e., direct costs).
    Following the close of the comment period on the proposed rule and 
draft economic analysis, an addendum was completed that incorporated 
public comments on the draft analysis and made other changes as 
necessary. The draft economic analysis and addendum address the impact 
of the proposed and final critical habitat designation, respectively, 
that may be attributable coextensively to the listing of the species. 
Because of uncertainty about the benefits and economic costs resulting 
solely from critical habitat designations, it is reasonable to estimate 
the economic impacts of a designation utilizing this single baseline.
    Together, the draft economic analysis and the addendum constitute 
our final economic analysis. The final economic analysis estimates 
that, over the next 10 years, the designation (coextensive with the 
listing) may result in direct economic impacts from implementation of 
section 7 of approximately $1.227 million present value cost. This 
increase of approximately $173,630 from the draft economic analysis' 
estimated potential direct economic effects from implementation of 
section 7 is due primarily to the evaluation of new projects identified 
during the public comment periods. This estimate also includes Air 
Force, Navy, Government of Guam, and private lands that were proposed 
as critical habitat but have been excluded from the final designation. 
Therefore, the direct cost of designating critical habitat for the 
Mariana fruit bat, Mariana crow, and Guam Micronesian kingfisher is 
likely lower than this estimate. We have excluded much of these lands 
so the direct economic impacts of the final designation is likely to be 
substantially lower than this estimate. With approximately 90 percent 
reduction in acreage and only refuge and Rota lands remaining, the cost 
may be closer to $463,300.
    While our final economic analysis includes an evaluation of 
potential indirect costs associated with the designation of critical 
habitat for Mariana fruit bat, Mariana crow, and Guam Micronesian 
kingfisher on Guam and the Mariana crow on Rota, there is considerable 
uncertainty whether any or all of these indirect impacts will occur, as 
they depend upon actions and decisions by entities other than the 
Service under circumstances for which there is limited or no history 
that can be used to determine the probability of different outcomes. 
The costs are of necessity speculative and may overestimate the 
impacts. However, without having more specific information, a 
conservative approach (maximum economic impact) was used.
    The final economic analysis discusses economic benefits in 
qualitative terms rather than providing dollar estimates because of the 
lack of information available to quantify the economic benefits of 
endangered species preservation and ecosystem improvements. The 
economic analysis identifies existence value, use value, recreational 
benefits, overall ecosystem health, and ecosystem preservation values 
as potential benefits of critical habitat designation. However, as 
stated above, economic benefits could not be estimated quantitatively 
due to a lack of information.
    A more detailed discussion of the economic impacts is contained in 
the draft economic analysis and the addendum. Both documents are 
available for inspection at the Pacific Islands Fish and Wildlife 
Office and are available by request (see ADDRESSES section).
    No critical habitat units in the proposed rule were excluded or 
modified due to economic impacts because the expected cost of the 
designation is not expected to be significant. The likely direct cost 
of designating critical habitat on Guam for the Mariana fruit bat, 
Mariana crow, and Guam Micronesian kingfisher is estimated to be 
$162,582 per year over the next ten years. This estimate, however, 
includes areas that were proposed as critical habitat but have been 
excluded from the final designation on Guam. Therefore, the anticipated 
direct costs of designating critical habitat on Guam for these three 
species are likely lower. The likely direct cost of designating 
critical habitat on Rota for the Mariana crow is estimated to be 
$12,142 per year over the next ten years.

National Security and Other Impacts

    The following analysis describes the likely positive and negative 
impacts of a critical habitat designation on Navy lands, Government of 
Guam lands, and private lands on Guam compared to the likely positive 
and negative impacts of a critical habitat exclusion on those lands. 
The Service focused on the following issues: to what extent a critical 
habitat designation would confer conservation, regulatory, and 
educational benefits, and to what extent an exclusion of critical 
habitat would reduce or eliminate negative impacts to the Navy's 
military mission and stewardship program under their COMNAVMARIANAS 
INRMP and the Government of Guam's stewardship program under their 
proposed alternative to critical habitat designation.

Lands Under U.S. Navy Jurisdiction

(1) Benefits of Designating Navy Lands as Critical Habitat
    Under section 7 of the Act, each Federal agency shall, in 
consultation with the Service, insure that any action authorized, 
funded, or carried out by the Federal agency is not likely to 
jeopardize the continued existence of a listed species or result in 
destruction or adverse modification of critical habitat. In the 
consultation process, a determination is made as to whether the 
proposed action is likely to result in jeopardy to the species or 
destruction or adverse modification of critical habitat. If jeopardy 
and/or adverse modification are likely, then the Service is required to 
provide reasonable and prudent alternatives to the proposed action to 
avoid jeopardy to the species and/or adverse modification of critical 
habitat. In addition, under section 7 of the Act, if the proposed 
action is not likely to jeopardize any listed species, but is 
anticipated to result in incidental take of a listed species then 
reasonable and prudent measures are required to minimize such 
incidental take. The primary regulatory benefit of critical

[[Page 62955]]

habitat designation on Navy lands would be to ensure that no actions 
authorized, funded, or carried out by the Navy would be likely to 
destroy or adversely modify critical habitat.
    Critical habitat was proposed on 8,285 ac (3,353 ha) of Navy lands 
at the Communications Annex and the Ordnance Annex. These lands are 
considered occupied by foraging Mariana fruit bats, and unoccupied by 
the Mariana crow and Guam Micronesian kingfisher. In 1994 the Navy 
entered into a cooperative agreement with the Service to create the 
Guam National Wildlife Refuge Overlay on Navy lands in Guam (Navy and 
USFWS 1994). The primary goal of the overlay refuge is to address the 
conservation needs of listed species through ``* * * a long-term, 
comprehensive program [that] * * * includes * * * brown treesnake 
control and eradication, * * * habitat and ecosystem protection, 
endangered and threatened species recovery and reintroduction.''(Navy 
and USFWS 1994). This agreement also provided that the Navy will 
coordinate with the Service for any Federal action which may affect 
Navy lands included within the Guam National Wildlife Refuge and 
identified in published recovery plans as providing essential habitat 
for these three species. Approximately 8,278 ac (3,350 ha) of proposed 
critical habitat were within the Guam NWR overlay lands on the two Navy 
facilities. Therefore, any Federal activities which may affect these 
areas, even if they are not currently occupied by the species, requires 
coordination between the Service and the Navy regarding impacts to this 
habitat.
    Currently, the Service believes that the proposed critical habitat 
for the Mariana crow and Guam Micronesian kingfisher on Navy lands is 
unoccupied by these species. The recovery goals for these species are 
discussed under ``Criteria Used to Designate Critical Habitat.'' In 
order to reach the goals, unoccupied areas on Navy lands will need to 
be occupied by self-sustaining populations. Neither recovery of these 
species nor long-term conservation of the Mariana fruit bat are 
possible without active management of their habitat, including brown 
treesnake control, habitat restoration and enhancement, and control of 
poaching (USFWS 1990a).
    As noted above, a critical habitat designation in these unoccupied 
areas would ensure that the Navy would consult with the Service for any 
actions it proposes that may affect this unoccupied habitat, and would 
require the Navy to avoid actions that would destroy or adversely 
modify the habitat. However, avoiding habitat destruction or adverse 
modification may not result in a reintroduction of these species, nor 
other active conservation measures identified in the recovery plans and 
currently being undertaken by the Navy to increase the quality of this 
habitat for listed species (e.g. predator control, anti-poaching 
efforts, etc).
    Another potential value of a critical habitat designation on Navy 
lands is the education of Navy personnel and the general public 
concerning the conservation value of these lands. Proposed and final 
critical habitat rules may serve an educational function by 
communicating to the public and military personnel that specific land 
areas are essential to the long-term conservation of listed species. 
However, most of these benefits have been effectively communicated 
through our publication of the proposed critical habitat rule, the many 
public and interagency meetings held to discuss the proposal, and the 
discussion of the excluded areas in the notice for this final rule. The 
inclusion of much of this land within the Guam National Wildlife Refuge 
overlay and the identification of essential habitat in the published 
recovery plans for these species (USFWS 1990a; 1990b) also confer 
important educational benefits.
(2) Benefits of Excluding Navy Lands From Critical Habitat Designation
    The Navy is engaged in, or had committed to engage in, a wide 
variety of proactive conservation activities on their lands in Guam. 
These activities include brown treesnake control measures, protection 
and enhancement of degraded habitat, and controlling the illegal 
hunting of Mariana fruit bat.
    The Navy has expressed concern that the overall economic burden of 
a critical habitat designation may reduce the funding available for 
these essential conservation activities. Given their strong statement 
of opposition, there is also concern a designation on Navy lands may 
reduce their incentive to maximize their conservation efforts on Guam 
(Moore, in litt., 2002). The Service does believe that a critical 
habitat designation may negatively affect the Navy's continued 
commitment to large-scale conservation and management efforts on Guam, 
as it would result in potential delays in completing section 7 
consultation requirements that would be triggered by critical habitat 
designations.
    While section 7(a)(1) of the Act requires Federal agencies to carry 
out programs for the conservation of listed species, it does not 
require any specific actions or expenditures in any specific locations. 
The conservation actions noted above remain voluntary on the part of 
the Navy.
    In addition, under the cooperative agreement which established the 
Guam National Wildlife Refuge, the Navy retains the right to withdraw 
its lands from the refuge if critical habitat is designated. While the 
Navy has not openly stated any intent to do so, this remains a 
possibility, and would be a considerable loss for the conservation of 
these species.
    The Service also finds that a final critical habitat designation 
would negatively impact the Navy's military mission, and thus national 
security. Overall, the Service has been able to work closely and in a 
positive, collaborative fashion with the Navy to minimize potential 
negative impacts to the Navy's training and operational activities as a 
consequence of the Act's regulations. However, consultations cannot 
avoid taking time, and in many cases conservation measures may result 
from consultation. Delays and additional costs to accomplish training 
or operational needs may have significant adverse consequences on 
military readiness essential to national security.
    Navy lands on Guam are used for training by the Navy, Marines, 
Army, Air Force, National Guard and Reserves. Forces based in the 
continental United States, along with those that are forward-based and 
forward-deployed, train on these lands. The Ordnance Annex offers areas 
for company-level operations, helicopter landing zones, and combat 
swimmer training. The Communications Annex is suitable for ground 
maneuvers, patrols and raids, and has a small arms range.

    The Deputy Chief of Naval Operations has commented on this 
proposal that:
    ``We are extremely concerned that a critical habitat designation 
may curtail or prevent continued use of these areas for military 
purposes, void taxpayer investments in infrastructure to support 
military activities at these locations, and require costly 
investments elsewhere to accomplish training requirements.''

    Military experience in recent combat situations has demonstrated 
that about 70 percent of combat casualties are due to lack of or 
insufficient training (Draft Economic Analysis, page 6-43). 
Modifications to training necessitated by a critical habitat 
designation could reasonably result in less realistic training methods. 
The Service is not in a position to determine how many such 
restrictions, perhaps individually not having a significant impact, may 
be incurred before training for Navy and

[[Page 62956]]

other military personnel would be degraded, whether the military might 
feel required to switch its training elsewhere, at considerable cost to 
taxpayers, or whether alternative areas are in fact available.
    In addition to possible restrictions on training and operations, 
the Navy has expressed concern over the delay inherent in having to 
undertake additional consultations. Critical habitat designations are 
likely to mean that certain Navy projects which currently receive 
categorical exclusions from National Environmental Policy Act (NEPA) 
requirements may be required to prepare NEPA documentation, in addition 
to the section 7 consultations. This can result in additional costs of 
between $20,000 to $100,000 and delays of six to nine months per 
project. If the project in question is military training, these delays 
could mean forces being deployed with inadequate training.
(3) The Benefits of Excluding Navy Lands From Critical Habitat Outweigh 
the Benefits of Inclusion
    Based on the above considerations, we have determined that the 
benefits of excluding Navy lands on Guam from this critical habitat 
designation, including benefits to national security, outweigh the 
benefits of including them.

Exclusion of Navy Lands Will Not Cause Extinction of the Species

    We conclude that the Navy's management plans and conservation 
efforts will provide long-term conservation benefits greater than those 
which would be provided if these Navy lands were designated as critical 
habitat. The Refuge Overlay agreement and other conservation measures 
described above have provided, and will continue to provide, tangible, 
beneficial, proactive conservation measures that will reduce the 
likelihood of extinction of these three species and increase the 
likelihood of their long-term survival.

Private and Territorial Lands on Guam

    We have excluded the approximately 4,930 acres (1,995 hectares) of 
private and territorial lands proposed by us as critical habitat on 
Guam under section 4(b)(2) of the Act. This is a discretionary 
authority Congress has provided to the Secretary with respect to 
critical habitat. The analysis which led us to the conclusion that the 
benefits of excluding these areas exceed the benefits of designating 
them as critical habitat, and will not result in the extinction of the 
species, follows.
    In this section, we first discuss the background and history of 
critical habitat proposals on Guam, and summarize the Natural Resource 
Management Plan that was developed by the Government of Guam and issued 
for public comment by us on June 2, 2004 (69 FR 31073). After this 
introduction, we analyze the benefits of including private and 
Government of Guam lands within the critical habitat designation and 
the benefits of excluding these areas.
    Background: In 1991, the Service first issued a proposal for 
critical habitat for the Mariana fruit bat, Mariana crow, and Guam 
Micronesian kingfisher (56 FR 27485). Although initially requested by 
the Governor of Guam, once the proposal was issued, both the Governor 
and legislature strongly opposed it. In 1993, the Guam National 
Wildlife Refuge was established by cooperative agreement with the Navy 
and Air Force. Based on establishment of this overlay refuge, the 
Service withdrew the critical habitat proposal in 1994. 59 FR 15696 
(1994).
    However, excess military land at Ritidian Point in Guam was then 
transferred to the Service under the Federal excess property 
regulations for inclusion in the refuge. Federal ownership and 
regulation of land on Guam has been a particularly sore point in the 
relationship between the Federal Government and the Government and 
people of Guam since extensive condemnations of land on Guam for 
military purposes occurred in the years following World War II.
    In this case, there was some level of expectation on Guam that the 
Ritidian Point lands would be made available to the Government of Guam, 
or returned to the prior owners, and their transfer to the Service 
provoked an extensive and long-lasting public outcry and created a 
barrier to constructive working relations between the Government of 
Guam and the Service. For many years there were regular demonstrations, 
at times approaching riots, against the Refuge, accompanied by threats 
against refuge staff to the point that law enforcement personnel had to 
be assigned for their protection, and destruction of refuge property.
    In addition, the Legislature of Guam enacted legislation in 
reaction to this transfer (21 GCA 68950), which provided in part that 
it was the policy of the Government of Guam to seek the termination of 
Federal ownership of the wildlife refuge, and transfer of the property 
to Guam; that Federal jurisdiction over ``local fauna, flora and 
habitat'' be opposed, that neither the Government of Guam or any of its 
agencies might express approval of the existence of the refuge or enter 
into any agreements which could be construed as providing support for 
the continuation of the refuge, and that ``the government of Guam 
hereby disestablishes all Federal designations of critical habitat or 
wildlife refuge as an act of sovereignty.'' Although the latter 
provision conflicts with Federal law and is therefore invalid, it is an 
express statement of local opinion regarding critical habitat 
designations on Guam.
    Natural Resource Management Plan for lands on Guam (Plan): The 
Government of Guam developed a natural resource management plan as an 
alternative to critical habitat and submitted it to the Service on 
April 1, 2004. While Guam termed the plan an ``Integrated Natural 
Resource Management Plan,'' we are labeling it a natural resource 
management plan, or Plan, here to avoid confusion with the Integrated 
Natural Resource Management Plans developed by the military pursuant to 
the Sikes Act, which have a variety of statutory requirements 
associated with them that are not applicable to Guam's plan, and which 
are also discussed in this notice. We issued the Plan for public review 
and comment as noted above.
    The Guam Plan proposes making available 4,548 acres of Government 
of Guam land to the recovery of the listed species, and a large number 
of general and specific actions related to increasing public awareness 
of the needs of the species, and habitat management and enhancement, 
monitoring and training to assist in the recovery of the listed species 
for which critical habitat is being considered.
    We agree with the Government of Guam that its implementation would 
be beneficial for the listed species. In general, recovery of these 
species will require active management that includes but is not limited 
to brown treesnake control, habitat protection and enhancement, and 
translocation or reintroduction of species to establish several self-
sustaining populations. Failure to implement these management measures 
would preclude recovery of the Mariana crow and Guam Micronesian 
kingfisher and increase the risk of extinction for Mariana fruit bat. 
It is unlikely that these efforts can occur successfully without the 
support of the Government of Guam and without the use of Government of 
Guam and/or private lands. We must also note that the Plan is far less 
detailed and certain of implementation than the Integrated Natural 
Resource Management Plans (INRMPs) developed by the Navy and the Air 
Force for their lands on Guam, and if judged by the standards 
established for INRMPs, it would likely not be approved. However, we 
believe

[[Page 62957]]

that as a sign of the desire of the Government of Guam to increase 
cooperation with the Service on the conservation and recovery of these 
species, particularly when considered against past relations, it is a 
significant positive step.
    It is clear from the record that the designation of critical 
habitat could be expected to adversely impact our working relationship 
with the Government of Guam. The record indicates and we agree that 
Federal regulation through critical habitat designation would be viewed 
as an unwarranted and unwanted intrusion into Guam's affairs, and 
likely be viewed by a sizeable segment of the population and of the 
legislature as ``another Federal land grab.''
    Our working relationship with the Government of Guam has been 
improving in recent years in relation to natural resource programs of 
mutual interest, following the disruptions and antagonisms that arose 
over the previous critical habitat proposal, as discussed above. This 
relationship provides a benefit to all parties involved in the 
conservation of the listed species. Those benefits include Guam 
applying for and receiving a Safe Harbor grant from the Service for the 
control of brown treesnakes and reintroduction of the Guam rail, a 
considerable lessening of the protests against the refuge, and Guam 
undertaking several recovery actions for these species on its own and 
in cooperation with the Service and with the military.

Analysis: The Benefits of Exclusion Outweigh the Benefits of Inclusion

(1) Benefits of Inclusion
    Few additional benefits would be derived from including the Guam 
lands in a critical habitat designation for the three species beyond 
what would be achieved through the implementation of Guam's Plan and 
continuation of their existing conservation efforts. The principal 
benefit of any designated critical habitat is that activities in and 
affecting such habitat with a Federal nexus require consultation under 
section 7 of the Act and insure that Federal agency actions are not 
likely to destroy or adversely modify such habitat. Such consultation 
would ensure that adequate protection is provided to avoid destruction 
or adverse modification of critical habitat. However, we conclude that 
few regulatory benefits to the species would be gained from a 
designation of critical habitat on these lands. This is because as 
shown in the Economic Analysis, there are likely to be few, if any, 
development projects with the required Federal nexus which would impact 
the proposed critical habitat, and because the loss of essential 
habitat on Guam territorial and private lands is not the primary threat 
to these species. With respect to future conservation actions 
undertaken by the Government of Guam under its Plan, since the use of 
existing Federal funding is integrated into the projects proposed, the 
section 7 consultation process will still be utilized to review these 
projects for their consistency with the Recovery Plan and avoidance of 
jeopardy to the species. The consultation process after a designation 
of the Guam territorial and private lands as critical habitat is 
unlikely to result in significant additional protections for the three 
species.
    Another possible benefit is that the designation of critical 
habitat can help to educate the public regarding potential conservation 
value of an area, and may focus efforts by clearly delineating areas of 
high conservation value for the three species. Any information about 
these species and their habitat that reaches a wide audience, including 
other parties engaged in conservation activities, would be considered 
valuable. The Government of Guam is currently working with the Service 
to address habitat and conservation needs for the species, and if 
nothing disrupts the relationship, we anticipate that they will greatly 
increase their efforts, as proposed in their Plan. The public 
educational benefits that might flow from the designation have almost 
certainly already been accomplished due to the intense controversy over 
the proposed designation.
    For these reasons, then, we believe that designation of the Guam 
territorial and private lands as critical habitat would have few 
additional benefits for the three species.
(2) Benefits of Exclusion
    The benefits of excluding the Guam lands from designated critical 
habitat are more significant. They include: (1) The maintenance of 
effective working relationships to promote the conservation of these 
species and their habitat; (2) the allowance for continued meaningful 
collaboration in projects contributing towards recovery of these 
species; and (3) the provision of conservation benefits to the Guam 
lands that might not otherwise occur.
    The designation of critical habitat would be expected to adversely 
impact our working relationship with the Government of Guam, as noted 
above.
    In testimony provided for a public hearing on the critical habitat 
proposal, former Governor Carl Gutierrez stated (with reference to the 
prospect of military lands being exempted from the designation and Guam 
land not being exempted): `` Such unequal standards are likely to 
increase the levels of non-cooperation between the Service and the 
Government of Guam.''
    In his official comment to the Service on the critical habitat 
proposal, Governor Felix Camacho stated ``This action has the potential 
to unravel much of the recovery infrastructure we have built on Guam 
over the past twenty years including the GNWR [Guam National Wildlife 
Refuge].'' This comment not only underscored the likely adverse impact 
that would arise from a designation, but raised for the first time the 
possibility of Guam accepting the existence of the refuge. 
Subsequently, the news media reports the Governor has publicly raised 
the issue of repealing the anti-refuge statute.
    Similarly, in his letter transmitting the Plan to the Service, 
Governor Camacho stated in part: ``As you are aware, this [the proposed 
critical habitat designation] has been a very sensitive issue and has 
impacted our programs for many years. I sincerely hope that this effort 
is the beginning of healing those wounds and strengthening the 
partnerships between us. * * * I am looking forward to working through 
the necessary steps to make this plan come to fruition.''
    The Service's then-Field Supervisor for the Pacific Islands Fish 
and Wildlife Office relayed similar concerns over likely adverse 
reactions to a critical habitat designation to the Washington office 
following the initial decision to exclude Navy and Air Force lands from 
the critical habitat proposal, as discussed above. ``The final CH will 
consist primarily of GovGuam/CNMI and private lands, with a little bit 
of fee-simple FWS refuge land. Many local Guamanians and Chamorro 
activists, who are very outspoken at our public meetings and who have 
rioted against the Federal government in the recent past, will likely 
use this issue to continue to agitate against the Federal government on 
Guam. They complain that they are treated differently than the Feds and 
the military, and they may use this decision to support and press their 
claim.'' (P. Henson, USFWS, in litt. 2003).
    For these reasons, we believe that our working relationships with 
the people and Government of Guam could well be enhanced if the Guam 
lands are excluded from the designation of critical habitat for these 
species, and are likely to be effectively eliminated if they are 
included.

[[Page 62958]]

    In addition, as noted above, recovery of these species will require 
active management that includes but is not limited to brown treesnake 
control, habitat protection and enhancement, and translocation or 
reintroduction of species to establish several self-sustaining 
populations. Not undertaking these measures would preclude recovery of 
the Mariana crow and Guam Micronesian kingfisher and increase the risk 
of extinction for Mariana fruit bat. It is unlikely that these efforts 
can be successfully accomplished without the support and cooperation of 
the Government and people of Guam, and the designation of critical 
habitat is, as shown above, likely to preclude that support and 
cooperation. Conversely, not designating it is likely to generate 
increased cooperation and support, as shown by the Government of Guam's 
development and submission of its Plan, and the comments of the 
Governor accompanying its transmittal.
(3) The Benefits of Exclusion Outweigh the Benefits of Inclusion
    In summary, the benefits of including the Guam territorial and 
private lands in the critical habitat designation are limited to a 
potential benefit gained through the requirements to consult and avoid 
adverse modification under ESA section 7 where a Federal nexus exists, 
and potential educational benefits. However, as discussed above, for 
the Guam lands these benefits would be minimal or have already 
occurred. The benefits of excluding these areas from being designated 
as critical habitat for these species are more significant, and include 
continued and improved cooperation between the Service and Guam towards 
the conservation and recovery of the species, without which recovery is 
unlikely to occur, and encouraging the continued development and 
implementation of the conservation measures outlined in their Plan as 
specific steps in that direction.
    They also include avoiding the likely termination of cooperation as 
a result of public and legislative hostility to a designation, avoiding 
a reinitiation of public hostility towards the refuge, the primary 
purpose of which is the conservation of the species for which the 
critical habitat was proposed, and avoiding the risk that this 
hostility towards the Service might spill over onto hostility towards 
the conservation and recovery of these species.
    We view the preservation and enhancement of good working relations 
with Guam, and their continued and increased involvement in the 
recovery efforts for these species, as a substantial benefit to which 
we give considerable weight, and without which reintroduction and 
recovery of these species is unlikely to occur. We accordingly find 
that the benefits of excluding these areas from critical habitat 
designation outweigh the benefits of including these areas.
(4) The Exclusions Will Not Result in Extinction of the Species
    As noted above, the Service may exclude areas from the critical 
habitat designation only if it is determined, ``based on the best 
scientific and commercial data available, that the failure to designate 
such area as critical habitat will result in the extinction of the 
species concerned.'' Here, we have determined that exclusion of the 
Guam lands from the critical habitat designation will not result in the 
extinction of the three species.
    First, the primary threat to the species is predation by the non-
native brown tree snake, not destruction of habitat (Savidge 1986, 
1987; USFWS 1990a, 1990b, 2004a, in prep; Wiles et al. 1995). Second, 
the Economic Analysis found few projects likely to adversely modify the 
species' habitat and having the required federal nexus for consultation 
under section 7 of the Act were likely to occur, so that section 7 
benefits from a designation, and impacts to section 7 protections from 
a large exclusion, would be limited.
    Thirdly, the Government of Guam has proposed a natural resource 
management plan with valuable conservation objectives for these 
species, and further proposes entering into an agreement with the 
Service and other interested parties to carry out the Plan. Guam has 
offered to undertake far greater conservation measures on these areas 
than would be available through the designation of critical habitat. 
Lastly, in the event Guam does not follow through on its proposals, we 
retain the ability to designate critical habitat on Guam.
    Accordingly, we have determined that the Guam territorial and 
private lands should be excluded under subsection 4(b)(2) of the Act 
because the benefits of excluding these lands from critical habitat for 
these species outweigh the benefits of their inclusion and the 
exclusion of these lands from the designation will not result in the 
extinction of the species.
    We recognize that between this exclusion and those provided to the 
military lands initially considered for inclusion, we have excluded 
most of the lands initially proposed for designation as critical 
habitat for these species. However, Congress expressly contemplated 
that exclusions of large portions of proposed critical habitat might 
occur when it enacted the 4(b)(2) exclusion authority. The accompanying 
Committee Report, House Report 95-1625, stated on page 17:
    ``Economic and any other relevant impact shall be considered by the 
Secretary in setting the limits of critical habitat * * * The 
consideration and weight given to any particular impact is completely 
within the Secretary's discretion. * * * The Committee expects that in 
some situations, the resultant critical habitat will be different from 
that which would have been established using solely biological 
criteria. In some situations, no critical habitat would be specified. * 
* *''
    We accordingly believe that these exclusions, and the basis upon 
which they are made, are fully within the parameters for the use of 
section 4(b)(2) set out by Congress.

Summary of Comments and Recommendations

    In the proposed rule published on October 15, 2002 (67 FR 63738), 
we requested all interested parties submit comments on the proposal by 
December 16, 2002. We also contacted all appropriate Territorial, 
Commonwealth, and Federal agencies; landowners; and other stakeholders 
and invited them to comment. In addition, we solicited comments from 
nine biologists, all with expertise in the fields of wildlife biology 
and conservation biology to provide peer review of the proposed 
critical habitat designation. On December 5, 2002, we published a 
notice in the Federal Register extending the comment period to January 
6, 2003 (67 FR 72407). On January 28, 2003, we published a notice to 
reopen the public comment period to February 18, 2003, in recognition 
of the damage and hardship sustained by Guam and Rota from Supertyphoon 
Pongsona (68 FR 4160). This period allowed more time for submission of 
comments on the proposed rule and draft economic analysis. In addition, 
on June 2, 2004, we published a notice to reopen the public comment 
period to July 19, 2004, to allow interested parties to consider and 
comment on the Government of Guam's proposed alternative to critical 
habitat designation (69 FR 31073).
    Seventy-two individuals, organizations, or government entities 
provided written and/or oral comments during the comment periods. 
Comments were received from 2 Federal agencies, 9 Territory or 
commonwealth agencies or elected officials (including the current 
(Felix Camacho) and previous (Carl Gutierrez) Governors of Guam), 53 
private organizations or individuals,

[[Page 62959]]

and 8 peer reviewers. We received oral testimony from 20 individuals on 
Guam and 8 individuals on Rota during public hearings. Ten of the 
individuals providing oral testimony also provided written comments or 
a copy of their testimony. The remaining 33 individuals or 
organizations provided only written comments. We reviewed all comments 
received for substantive, relevant issues and new data regarding 
critical habitat and the three species for which critical habitat was 
proposed. Peer reviewer comments are summarized separately in the next 
section. Public comments are grouped into four general issues relating 
to the proposed critical habitat determination and draft economic 
analysis and are addressed in the summary below.

Peer Review

    We solicited independent opinions from a total of 33 knowledgeable 
individuals with expertise in one or several fields, including 
familiarity with the species, the geographic region, or the principles 
of conservation biology. During our development of the proposed rule, 
we sent draft maps of important habitat for the Mariana fruit bat, 
Mariana crow, and Guam Micronesian kingfisher to 29 of those reviewers 
and received responses from 9. In accordance with our policy published 
on July 1, 1994 (59 FR 34270), we solicited peer review of the proposed 
rule from 10 individuals, 6 of whom had reviewed the habitat maps 
earlier. Of those 10, we received responses from 8. Peer reviewers 
included experts from the Air Force, Philadelphia Zoo, Guam Department 
of Agriculture, CNMI Division of Fish and Wildlife, Smithsonian 
National Zoo, BirdLife International--Fiji, U.S. Geological Survey 
(Forest and Range Ecosystem Science Center, Oregon; Fort Collins 
Science Center), Lincoln Park Zoo (Chicago, Illinois), Colorado State 
University, Virginia Polytechnic Institute and State University, and 
private biological consultants.
    All eight peer reviewers thought our methods for designating 
critical habitat were sound, the best available scientific information 
was used, and the relevant scientific literature, reports, and recent 
research were summarized adequately. All eight also felt that inclusion 
of currently unoccupied areas and of degraded areas with restoration 
potential was justified and well supported, and that the definition of 
primary constituent elements and the criteria used to identify the 
proposed critical habitat were comprehensive, valid, and justified. All 
eight reviewers generally supported the draft delineation of critical 
habitat for the Mariana fruit bat, Mariana crow, and Guam Micronesian 
kingfisher on Guam and for the Mariana crow on Rota.
    Five peer reviewers stated that we had identified in the proposed 
rule an ecologically appropriate configuration of habitats and 
geographic areas. Five stated that this configuration includes 
sufficient area overall to support the long-term conservation of these 
three species, though several also noted it would be difficult to 
justify changing the boundaries significantly. Two said the amount of 
critical habitat proposed was the minimum necessary to support the 
long-term conservation of the species. Four reviewers stated that the 
inclusion of certain Government of Guam and private lands is justified 
by the quality of the habitat in those areas. Two reviewers stated that 
the designation of critical habitat is necessary for the recovery of 
these three species despite the management challenges presented by the 
brown treesnake, and one reviewer emphasized that, in addition, brown 
treesnakes on Guam and rats and feral cats on Rota must be effectively 
controlled as part of the long-term conservation of the Mariana fruit 
bat, Mariana crow, and Guam Micronesian kingfisher. One reviewer 
observed that designation of critical habitat is especially important 
for the crow and kingfisher on Guam because, other than the very small 
crow population on Andersen Air Force Base, these species are not 
present. One reviewer particularly supported our recognition that the 
Guam Micronesian kingfisher will need to have two populations on Guam, 
and hence habitat in the south as well as in the north, for the species 
to withstand chance occurrences that could extirpate a single 
population. Two reviewers commended our reference to studies conducted 
on related taxa in other locations and, at the same time, our caution 
in applying the results of such studies to the Mariana Islands. 
Responses to peer reviewer comments are included below with our 
responses to public comments.
Issue 1: Biological Justification and Methodology
    (1) Comment: Three reviewers questioned whether we had identified 
sufficient critical habitat for the Mariana crow, given the large 
territory size of this species. These reviewers also stated their 
opinion that the population goals identified in the draft revised 
recovery plan for the crow seem to be too low.
    Our Response: The Service used published and unpublished 
information about the habitat requirements of the Mariana crow to 
define the primary constituent elements (PCEs) for this species, and we 
identified areas on Guam and Rota containing these habitat 
characteristics. We used recovery criteria drafted by our Mariana crow 
recovery team and information about territory size to calculate the 
amount of area needed to support viable populations to determine the 
boundaries of critical habitat for the Mariana crow on Guam and Rota. 
The recovery team drafted the population goals for recovery of the 
species based on population viability analyses that included the best 
data available on the demography and life history of the crow and on 
its habitat parameters.
    (2) Comment: Two commenters stated that the existing conservation 
areas on Rota provide sufficient habitat for the Mariana crow and that 
the crow population on the island doesn't require more than 1,500 or 
2,000 acres.
    Our Response: Our calculation of the amount of habitat required to 
support a viable population of Mariana crows on Rota, which exceeds the 
area encompassed by existing conservation areas on the island, was 
based on the best available data on the crow's territory size and on 
the recommendations of our Mariana crow recovery team. Please see the 
section of this rule entitled ``Criteria Used To Identify Critical 
Habitat'' for more details.
    (3) Comment: One reviewer questioned whether we had identified 
sufficient critical habitat for the fruit bat, given the data we 
present on the wide-ranging foraging habits of this species.
    Our Response: Our delineation of critical habitat for the Mariana 
fruit bat was constrained by the extent of forest containing the 
primary constituent elements needed by bats, i.e., food plants and 
areas sufficiently remote to provide adequate roost sites. Although 
bats do range widely when they forage, the presence of the PCEs, and 
hence the quality of the foraging range, is variable. For example, the 
large areas dominated by tangantangan do not provide foraging habitat 
for fruit bats. These therefore were not included in critical habitat.
    (4) Comment: One peer reviewer and one commenter suggested that the 
Urunao and Jinapsan areas in northern Guam, and the cliff faces in 
these areas and at Ritidian Point, should be included in critical 
habitat because bats use these areas, they provide a buffer for the 
historical fruit bat colony sites along the north coast, and they 
contain the PCEs for the Mariana crow and Guam Micronesian kingfisher. 
A commenter asked why lands below the cliffline are

[[Page 62960]]

included in critical habitat in some areas and not in others.
    Our Response: We agree that some of the Jinapsan and Urunao private 
lands do contain the PCEs for the Mariana fruit bat, Mariana crow, and 
Guam Micronesian kingfisher, but some of these lands were not included 
in the proposed critical habitat because these lands were degraded, and 
we determined that they were not essential to the long-term 
conservation of these species. For this same reason, we included in the 
proposed critical habitat some areas below the cliffline and not others 
(i.e., not all lands below clifflines are essential to the long-term 
conservation of these species). We agree with the reviewer and 
commenter, and in this final rule, we have included all of the Guam 
National Wildlife Refuge lands at Ritidian Point in critical habitat, 
including the cliff faces. After reviewing those small areas at Urunao 
and Jinapsan that were included in the proposed critical habitat, in 
this final designation we have determined that those private lands also 
are not essential to the conservation of these species. Although they 
do contain the PCEs, these lands are not included in the critical 
habitat designation.
    (5) Comment: One reviewer stated that the quality of the remaining 
forest on Guam has declined since the 1990 recovery plans (USFWS 1990a, 
1990b) defined ``essential habitat'' for Guam's endangered birds and 
bats. This decline has resulted from increased populations of feral 
pigs, deer, and carabao and encroachment by invasive alien plants, both 
of which exacerbate the natural disturbance caused by typhoons. The 
reviewer suggests that the critical habitat for the Mariana crow be 
extended along the northwest and northeast of Guam to include the same 
areas proposed for the kingfisher and fruit bat.
    Our Response: We acknowledge the likelihood that forest quality has 
declined on Guam since 1990, but without detailed documentation of this 
decline, we are unable to assess it in relation to the PCEs for the 
Mariana fruit bat, Mariana crow, or Guam Micronesian kingfisher. We 
thus cannot calculate how much this decline in habitat quality would, 
for example, influence territory size for the Mariana crow or Guam 
Micronesian kingfisher in order to justify a commensurate increase in 
the amount of habitat deemed essential for the long-term conservation 
of these species. However, if new information becomes available about 
the quality of this habitat and its adequacy for the conservation of 
these species, we will consider amending this final critical habitat 
rule.
    (6) Comment: One reviewer observed that we did not adequately 
articulate the justification for including coconut plantations in 
critical habitat.
    Our Response: While a coconut plantation does not contain all of 
the primary constituent elements for all three species, coconut palms 
provide some resources for them, and we identified some unoccupied 
disturbed areas as essential to these species because they do contain 
some PCEs for the species, have high restoration potential, and/or 
provide connectivity between areas of high quality forest. Guam 
Micronesian kingfishers were documented to excavate nest cavities in 
coconut palms in coastal areas, and Mariana fruit bats and Mariana 
crows have been documented to forage in coconut-dominated forests.
    (7) Comment: One reviewer asked why the Sabana on Rota was not 
identified as critical habitat for the crow.
    Our Response: Surveys conducted on Rota in 1982, 1987, 1994, 1995, 
and 1998 indicate that crows do not use the upper elevations of the 
Sabana (Engbring et al. 1986; Engbring 1987; USFWS unpubl. data). We 
conclude that this area does not contain the PCEs for the crow, and we 
therefore do not include it in critical habitat for the Mariana crow. 
We have, however, included areas along the slopes of the Sabana that do 
contain the PCEs and are considered essential to the long-term 
conservation of the Mariana crow.
    (8) Comment: Several commenters and one reviewer expressed concern 
that critical habitat designation could result in the deliberate 
harassment of the crow, which already is disliked locally and 
considered a pest. One reviewer stated that persecution of crows that 
may result from the designation of critical habitat for the Mariana 
crow on Rota is a serious concern because adult survivorship is the 
demographic variable with the greatest influence on the viability of 
the crow population.
    Our Response: When we reviewed information about persecution 
(intentional harm or harrassment) of crows on Rota for our prudency 
determination, we found we had insufficient evidence to determine that 
critical habitat for the crow on Rota was not prudent because of an 
increased risk of take. Because we do not have documentation of 
significant harassment of crows on Rota, we are again unable to use 
this concern as justification for excluding Rota from critical habitat.
    (9) Comment: Numerous commenters, including the previous Governor 
of Guam, stated their opposition to critical habitat on the grounds 
that it does not address control or eradication of the introduced brown 
treesnake on Guam. Predation by the brown treesnake is commonly 
accepted as the primary cause of decline in the Mariana crow and Guam 
Micronesian kingfisher on Guam and is believed to have contributed to 
the decline of the Mariana fruit bat on Guam, and these commenters 
questioned the value of designating critical habitat for these species 
before this major threat is removed.
    Our Response: The continued need to address threats to an 
endangered species does not obviate our statutory requirement to 
designate critical habitat. Controlling predators is a conservation 
issue separate from designating critical habitat on Guam. When a 
species is considered for listing under the Act, we assess the status 
of the species according to five factors specified in section 4(a)(1) 
of the Act. The three species for which we are designating critical 
habitat were listed as endangered in 1984, because of the effects of 
all five (49 FR 33881); therefore, all five must be addressed to 
recover these species. The loss of native habitat on Guam, predation by 
nonnative animals, and poaching (for the Mariana fruit bat) were 
particularly identified as the dominant factors leading to their 
decline.
    Addressing each of these threats to the Mariana fruit bat, Mariana 
crow, and Guam Micronesian kingfisher entails a variety of activities. 
While efforts to control the brown treesnake continue (including 
trapping, research on the treesnake's physiology and ecology, and the 
development of new toxicants and methods of delivery), it is vital that 
habitat for Guam's native wildlife be safeguarded for the future. Brown 
treesnakes may prey upon other animals, including native birds and 
bats, but they do not affect the structure of Guam's native forests, 
which harbor the primary constituent elements for the three listed 
species regardless of the presence of snakes.
    (10) Comment: Two commenters observed that critical habitat will 
benefit brown treesnakes as well as the birds and fruit bat by 
protecting habitat.
    Our Response: Efforts to control the brown treesnake on Guam will 
not be impeded by critical habitat designation. These efforts will take 
place within critical habitat when researchers and land managers 
determine control measures are appropriate, as they have taken place 
previously in areas that are

[[Page 62961]]

inhabited by listed species. Brown treesnake research or control 
experiments in critical habitat will include consultation with the 
Service when necessary under section 7 of the Act, as they do now when 
they are conducted in areas inhabited by the Mariana crow, Mariana 
fruit bat, or any other listed species.
    (11) Comment: Two commenters asked why the Service does not 
designate critical habitat for these species on unoccupied islands, for 
example, the northern islands in the CNMI, instead of on Guam and Rota.
    Our Response: This final rule implements the requirement of the Act 
to designate critical for these three listed species. Of these three 
species, the only one known to occur in the uninhabited northern 
islands in the Marianas is the Mariana fruit bat. Because the fruit bat 
currently is listed as endangered only on Guam and is not listed in the 
CNMI, we cannot designate critical habitat for the bat in the CNMI. To 
the best of our knowledge, Mariana crows and Micronesian kingfishers 
have never occurred on those islands, and we have no biological 
justification for identifying critical habitat for Mariana crows and 
Guam Micronesian kingfishers on those islands.
    (12) Comment: Two commenters suggested that widespread use of 
pesticides by the military following World War II may have been a 
leading cause of the decline and extinction of Guam's birds, and the 
commenters asked whether this possibility has been studied.
    Our Response: The effect on Guam's wildlife of widespread DDT use 
between the 1940s and 1960s has been investigated to some extent (Baker 
1946; Drahos 2002), but the results have been equivocal (Diamond 1984; 
Grue 1985). Although predation and habitat loss are the accepted 
leading causes of the loss of Guam's native species, it is possible 
that DDT contributed somewhat to the early declines, particularly of 
insectivorous species such as the endangered Mariana swiftlet 
(Aerodramus bartschi). It is important to note that DDT would have 
affected populations of introduced predators as well, either through 
toxicity or reduction of the prey base. Because these effects were not 
measured at the time, it is difficult to sort out the relative impacts 
of the pesticide on Guam's native birds and on the nonnative mammals 
and reptiles that preyed upon them.
    (13) Comment: Two commenters, including the acting Commissioner of 
the Marianas Public Land Authority, stated that because one of our 
major sources of scientific information (the revised recovery plan for 
the Mariana crow) is in draft form, the Service has not used the best 
available scientific and commercial data, and furthermore the Service 
has used information that may be misleading or incorrect.
    Our Response: The draft revised recovery plan for the Mariana crow 
contains the best and most recent data on various aspects of the life 
history and habitat requirements of the Mariana crow. The draft revised 
recovery plan has not yet been through the Service's peer review 
process or been approved by the Regional Director, but the information 
compiled in this document comes from a wide variety of published and 
unpublished sources that have been appraised by our Mariana crow 
recovery team. This team is comprised of independent, scientific 
experts who are well qualified to judge the value and accuracy of the 
data and other information in the draft revised recovery plan, 
including data generated by individual recovery team members.
    (14) Comment: Two commenters asked how we know that the three 
species will stay within designated critical habitat.
    Our Response: Critical habitat is not intended to create a preserve 
or protected area in which a particular listed species is somehow 
confined. Rather, the delineation of critical habitat is based 
fundamentally on our knowledge of which habitat components each species 
requires to carry out its life functions, and thus where the species 
have occurred naturally. Critical habitat, therefore, identifies those 
areas where the listed species are most likely to occur and to thrive, 
not to areas where they should be limited.
    (15) Comment: Two commenters asked whether Service personnel had 
trespassed on private property in the process of determining map 
boundaries for critical habitat on Guam.
    Our Response: Service biologists did not trespass on private 
property at any time. The development of the proposed critical habitat 
boundaries was based primarily on analysis of maps and aerial 
photographs from the U.S. Geological Survey and IKONOS satellite 
imagery, review of scientific literature, our own knowledge of the 
area, and discussions with other scientists familiar with these three 
species and with Guam and/or Rota. In addition to previous fieldwork, 
we visited Guam just prior to beginning development of the proposed 
rule, met with representatives of government agencies, and toured 
military bases and other lands where we obtained authorized access.
    (16) Comment: There is no biological basis for designating critical 
habitat for the Mariana crow on Rota because the crow population on 
that island is not presently limited by the availability of habitat, 
and the size of the population currently exceeds the number of breeding 
pairs needed for recovery, as specified in the draft revised recovery 
plan.
    Our Response: The purpose of critical habitat designation is to 
identify areas containing the primary constituent elements necessary 
for a listed species to carry out its life functions and to identify 
the quantity of those areas that are ``essential to the conservation of 
the species,'' irrespective of whether those areas are occupied by the 
species or whether the species occupies a particular area at carrying 
capacity.
    (17) Comment: The Service has not addressed the adverse impacts of 
jet noise on fruit bats and birds.
    Our Response: The Service conducted a study in 1992-1995 to assess 
the effect of aircraft overflights on Mariana fruit bats and Mariana 
crows (Morton 1996). The results of this study did not indicate that 
aircraft overflights directly contributed to nest failure in Mariana 
crows, but the results did suggest that noise or visual disturbance in 
proximity to a crow nest or fruit bat colony may disturb the animals 
and cause them to leave nests or roost sites. Nevertheless, the 
presence of auditory or visual human disturbances does not affect the 
presence of the primary constituent elements used to define critical 
habitat.
    (18) Comment: The inclusion of forest at Jinapsan in critical 
habitat is not appropriate because this habitat is on the windward side 
of the island and prone to high damage from typhoons.
    Our Response: The forest at Jinapsan was excluded from final 
critical habitat designation. However, this forest is considered 
essential to the conservation of the Mariana fruit bat, Mariana crow, 
and Guam Micronesian kingfisher because it contains the primary 
constituent elements for these species. The forest ecosystems of the 
Mariana Islands have evolved with typhoons, a typical if irregular 
natural disturbance in the archipelago. A particular windward forest 
area may be affected more than other areas by typhoons, and this may 
reduce its value for human activities, but it does not remove the value 
of the area as habitat for native species.
    (19) Comment: Why did the Service include unoccupied habitat in the 
proposed critical habitat designation?
    Our Response: Section 3(5)(A)(ii) of the Act provides a definition 
for unoccupied critical habitat: ``specific

[[Page 62962]]

areas outside the geographical area occupied by the species * * * upon 
a determination by the Secretary that such areas are essential for the 
conservation of the species.'' In many cases, the population of an 
endangered species is so small that the area currently occupied by the 
species is not enough to support a larger, self-sustaining population. 
On Guam, the small population of the Mariana crow and the absence of 
the Guam Micronesian kingfisher provide extreme examples of this 
situation.
    Our recovery plans for these species identify the need to expand 
existing populations and reestablish wild populations within their 
historical range. Because of the very limited current range of the 
Mariana crow on Guam and the extirpation of the Guam Micronesian 
kingfisher from the wild, identifying only occupied areas as essential 
clearly would not meet the conservation requirements of the species. 
For example, the recovery goals for the Mariana crow call for a self-
sustaining population of at least 75 pairs in northern Guam. The area 
occupied by the current population of 10-12 Mariana crows would be too 
small to sustain a population of 75 pairs of crows.
    When designating unoccupied habitat for these species, we first 
evaluated lands that are suitable for each species. Of this suitable 
habitat, we determined what areas are essential for the conservation of 
each species using the guidelines outlined in the recovery plans (i.e., 
areas that contain one or more of the primary constituent elements and 
that are either in good condition for conservation efforts or could be 
made good through appropriate management actions) and would provide 
space needed by the species to reach our recovery goals. These goals 
are as follows: At least two permanent, major colonies of Mariana fruit 
bats in northern Guam and one in southern Guam, each harboring at least 
400 bats, and a minimum total bat population of 2,500 on the island 
(USFWS 1990a); 75 pairs of Mariana crows each in northern Guam, 
southern Guam, and on Rota (USFWS in prep); and 1,000 Guam Micronesian 
kingfishers in northern and southern Guam (USFWS 2004a).
    Subsequent to the proposed rule, exclusions were made in northern 
and southern Guam (see ``Exclusions from Critical Habitat'' for 
details). The designated critical habitat on Guam is considered 
occupied by Mariana fruit bat and unoccupied by the Mariana crow and 
Guam Micronesian kingfisher. The designated critical habitat on Rota is 
considered occupied by the Mariana crow.
    (20) Comment: The Service should designate 6,000 acres of critical 
habitat for the Mariana crow on the mainland United States instead of 
on Rota.
    Our Response: The Mariana crow is only found, and to the best of 
our knowledge has only ever been found, on the islands of Guam and Rota 
in the Mariana Islands. Therefore, these islands are the only 
appropriate locations for designating critical habitat for these 
species.
    (21) Comment: What criteria were used to determine which lands 
would be included in critical habitat?
    Our Response: We refer the commenter to the ``Critical Habitat 
Designation'' section of the proposed rule and of this final rule.
    In summary, as required by the Act and regulations (section 4(b)(2) 
and 50 CFR 424.12), we used the best scientific information available 
to identify areas that contain the physical and biological features 
that are essential for the conservation of the Mariana fruit bat, Guam 
Micronesian kingfisher, and Mariana crow. This information included: 
Peer-reviewed scientific publications (e.g., Baker 1951; Jenkins 1983; 
Wiles et al. 1995; NRC 1997); published and draft revised recovery 
plans (USFWS 1990a, 1990b, 2004a, in prep); the final listing rule (49 
FR 33881); unpublished reports by the Guam Division of Aquatic and 
Wildlife Resources (GDAWR), CNMI Division of Fish and Wildlife (DFW), 
and the Service (e.g., Wiles 1982a; Engbring and Ramsey 1984; Morton 
1996; Morton et al. 1999); aerial photographs and satellite imagery of 
Guam and Rota; personal communications with scientists familiar with 
the species and habitats; and comments received during public comment 
periods and in response to critical habitat outreach packages. Specific 
information we used from these sources includes estimates of historic 
and current distribution, abundance, and territory sizes for the three 
species, as well as data on resource and habitat requirements. From 
recovery plans, we considered the recovery objectives and the 
assessments of the habitat necessary to meet these objectives, as well 
as life history information.
    (22) Comment: Why was the cargo drop zone on Andersen Air Force 
Base not included in critical habitat?
    Our Response: Degraded habitats that have high restoration 
potential may be included in critical habitat designations. In this 
case, the area that has been completely cleared of vegetation for the 
Air Force's cargo drop training is likely to remain cleared for this 
purpose and therefore has little potential for restoration of the 
primary constituent elements for the three species.
    (23) Comment: The previous Governor of Guam commented that the 
Service's criteria for including private lands in critical habitat was 
not applied evenly because lands with high economic value were 
deliberately left out to avoid a high estimate of economic impact.
    Our Response: The development potential or economic value of lands 
was not considered in determining the boundaries of proposed critical 
habitat. These boundaries were based on biological criteria. Potential 
economic impacts were estimated subsequent to the delineation of 
proposed critical habitat.
    (24) Comment: Why has the Service designated critical habitat for 
species that are extinct?
    Our Response: We have not. In the proposed rule, the Service 
determined that designating critical habitat for the little Mariana 
fruit bat, Guam broadbill, and Guam subspecies of bridled white-eye is 
not prudent because these species likely are extinct. On February 23, 
2004, the Service removed the Guam broadbill from Federal List of 
Threatened and Endangered Species due to extinction (69 FR 8116) and 
will consider delisting the remaining species in the future as staffing 
and funding resources allow. This final designation includes critical 
habitat for the Guam Micronesian kingfisher, a species that, while 
extirpated from the wild, is not extinct.
Issue 2: Policy and Regulations
    (25) Comment: One peer reviewer stated that to designate critical 
habitat primarily on Federal lands is appropriate because consultation 
under section 7 of the Act applies to Federal agencies. Several 
commenters, including the acting Commissioner of the Marianas Public 
Lands Authority, asked that the Service exclude all private lands from 
the critical habitat designation. Two of these commenters asked why we 
include private lands if there is no Federal nexus to trigger section 7 
consultation and if critical habitat does not provide substantial 
protection for these endangered species. Several commenters requested 
that we exclude private lands, access corridors to these private lands 
through Federal lands, Federal excess lands, and/or a range of specific 
properties on Guam and Rota from critical habitat. The commenters claim 
that such exclusions legally can be made because they will not result 
in the extinction of these species.

[[Page 62963]]

    Our Response: It is true that consultation under section 7 takes 
place between Federal agencies, but this consultation is triggered by 
actions that are carried out, authorized, or funded by Federal agencies 
on state, Territorial, or private lands, as well as by actions on 
Federal lands. Therefore, the section 7 consultation aspect of critical 
habitat is not solely relevant to Federal lands.
    Critical habitat designation is one of a number of conservation 
tools established in the Act that can play an important role in the 
long-term conservation of a species. Designation of critical habitat is 
a way to guide Federal agencies in evaluating their actions, in 
consultation with the Service, such that their actions do not hamper 
conservation of listed species. If activities on private lands 
designated as critical habitat do not involve any Federal funding or 
authorization, then the landowner should not be affected by the 
designation. There are, however, educational or informational benefits 
to the designation of critical habitat. Educational benefits include 
the notification of landowners, land managers, and the general public 
about the importance of protecting the habitat of these species and 
dissemination of information regarding their essential habitat 
requirements.
    We identify critical habitat based on biological and management 
criteria described in section 4(b)(2) of the Act, and we apply these 
criteria irrespective of land ownership and the potential for Federal 
involvement in development or other land use projects. We can also 
exclude lands from critical habitat under section 4(b)(2) of the Act. 
Although it is true that exclusions cannot be made if they will result 
in the extinction of the species, this is not the sole criterion that 
allows us to make an exclusion. We direct the commenters to the section 
of this rule entitled ``Exclusions from Critical Habitat'' for 
information about areas excluded from the final critical habitat 
designation.
    (26) Comment: Several peer reviewers stated that future 
conservation projects may justify a reconsideration of the critical 
habitat boundaries, but existing conservation activities, including 
Integrated Natural Resource Management Plans (INRMPs) prepared by the 
U.S. Navy (Navy 2001) and U.S. Air Force (Air Force 2003), are 
insufficient to supplant the protections afforded by critical habitat 
designation. Furthermore, planned future conservation activities are 
either too far from implementation or do not address the recovery goals 
for these three species sufficiently to warrant exclusions from 
critical habitat of the lands involved in such current or planned 
projects.
    Our Response: The Service fully complies with the Act in assessing 
potential exclusions from critical habitat designations. Please see the 
section of this rule entitled ``Exclusions from Critical Habitat'' for 
a description of the exclusions leading to this critical habitat 
designation.
    (27) Comment: The military lands on Guam have the conservation 
benefits of the overlay refuge and are physically protected by high 
security and restricted access. The designation of critical habitat 
thus will not be a significant imposition to further development.
    Our Response: We have excluded Air Force and Navy lands from this 
final designation. See the section of this rule entitled ``Exclusions 
from Critical Habitat'' for detailed discussion of why these areas have 
been excluded from the final designation.
    (28) Comment: Two reviewers and several commenters stated that a 
Habitat Conservation Plan (HCP) for the Mariana crow on Rota would be 
preferable to the designation of critical habitat because the HCP would 
be a multilateral effort and thus more acceptable to the local 
community and government than critical habitat, a regulatory action 
imposed unilaterally by the Service. Several commenters asked what the 
status would be of critical habitat on Rota if the HCP were completed, 
whether it will still be possible to complete the HCP once critical 
habitat is designated, and whether the designation of critical habitat 
is taking place because the HCP isn't finished.
    Our Response: We agree that the protective measures and actions of 
an HCP can be very effective in conserving important habitat features 
(e.g., primary constituent elements). Completed HCPs have been excluded 
from critical habitat designations because of their management and 
protective measures or because there are greater conservation benefits 
in excluding HCPs from a designation. However, the lack of a completed 
HCP was not the reason for this critical habitat designation. The 
designation of critical habitat and the development of HCPs are 
independent regulatory processes that arise from different sets of 
circumstances and different sections of the Act. Under section 4(a)(3) 
of the Act, we are generally required to designate critical habitat for 
a species at the time it is federally listed as an endangered or 
threatened species, and in accordance with section 4(b)(2), on the 
basis of the best scientific data available and after taking into 
consideration the economic impact, and any other relevant impact, of 
specifying an area as critical habitat. Under section 10 of the Act, 
habitat conservation plans are developed to permit and provide 
mitigation for take of listed species associated with development and 
other projects on non-Federal lands. HCPs are undertaken at the 
discretion of non-Federal landowners, and the development of an HCP on 
Rota has been an ongoing process for nearly a decade. In 2002, the 
Service awarded $244,000 to the CNMI to support the completion of an 
HCP on Rota for the development of agricultural homesteads and the 
Mochong cultural center. In 2004, the Service awarded $339,522 to the 
CNMI to support the completion of an island-wide HCP for Rota. In the 
future, the completion of HCPs on Rota and the establishment of the 
associated mitigation areas may provide a basis for review and revision 
of the critical habitat boundaries on Rota.
    (29) Comment: Several commenters, including the previous Governor 
of Guam, felt that the Service did not adequately inform local 
governments and agencies and private landowners about the pending 
critical habitat proposal or involve them in the process. Several 
commenters expressed a desire for the Service to hold more public 
meetings and hearings and stated that the format for the hearings was 
inappropriate and questions raised should have been answered there.
    Our Response: We have made a significant effort to contact and 
inform local stakeholders on Guam and Rota and include them in the 
critical habitat process. We mailed information and other materials to 
private landowners using land ownership information and addresses 
obtained from the Government of Guam and the CNMI. We also attempted to 
meet and obtain input from many of the resource management agencies on 
Guam and in the CNMI that could be affected by a designation, including 
the Guam Division of Aquatic and Wildlife Resources and CNMI Department 
of Land and Natural Resources. We also attempted to contact 
representatives of the Chamorro Land Trust Commission (CLTC) and CNMI 
Board of Public Land regarding the pending critical habitat proposal.
    The Service has done its best to solicit input from the local 
communities on Guam and Rota and provide opportunities for individuals 
to communicate their concerns and comments. Our court-ordered deadline 
for publishing a final decision on critical habitat did not leave time 
for additional meetings or hearings. We realize that the public hearing 
format is

[[Page 62964]]

frustrating because it is primarily a forum for individuals to submit 
their comments and have them entered into the record, not for 
discussion of concerns. Such discussion likely would prevent some 
comments from being recorded in the record due to time constraints. For 
this reason, the Service held public meetings the month prior to the 
hearings, so that individual questions could be answered. Please see 
the chronology of our outreach efforts in the ``Previous Federal 
Actions'' section, above.
    (30) Comment: Several commenters, including the current and 
previous Governors of Guam and the Governor of the CNMI, urged the 
Service to seek alternatives to critical habitat, and some requested 
that a group including representatives of all the landowners and other 
stakeholders in land use and conservation be convened to discuss such 
alternatives.
    Our Response: We have considered alternatives within the context of 
our determination that designating critical habitat is prudent for the 
Mariana fruit bat, Mariana crow, and Guam Micronesian kingfisher. On 
June 13, 2003, the Guam District Court granted a deadline extension to 
allow the Government of Guam time to develop an alternative to critical 
habitat designation on Guam. On June 5, 2004, the Government of Guam 
provided the Service a proposed alternative to critical habitat 
designation. After reviewing the Government of Guam proposal, we 
determined that the benefits of designating Government of Guam lands 
and private lands on Guam as critical habitat did not outweigh the 
benefits of excluding them from designation. Please see the ``Analysis 
of Impacts Under ESA 4(b)(2)'' section for details.
    After the extension was granted on June 13, 2003, we also notified 
the Mayor of Rota and Mariana Public Land Authority that there was 
additional time to discuss potential alternatives to designation of 
critical habitat on Rota. However, we received no response from the 
CNMI on developing alternatives.
    In addition to excluding Government of Guam lands and private lands 
on Guam, we excluded Air Force and Navy lands from critical habitat 
designation under sections 4(a)(3) and/or 4(b)(2) of the ESA, as 
amended by Section 318 of the fiscal year 2004 National Defense 
Authorization Act. Please see the ``Exclusions from Critical Habitat'' 
section for details.
    (31) Comment: Conservation on the Mariana Islands would be better 
addressed through public-private partnership projects than through the 
designation of critical habitat.
    Our Response: We have a legal obligation to designate critical 
habitat for listed species to the extent prudent and determinable. Some 
areas may be excluded from critical habitat, for example, under section 
4(b)(2) of the Act. As previously stated, however, we will continue to 
work with landowners, and the potential exists for reviewing and 
possibly revising critical habitat boundaries in the future. 
Partnerships among private landowners, the Service, and conservation 
organizations are a highly effective conservation tool, and we welcome 
initiatives from private landowners to explore the potential for 
partnerships on their land. We refer interested parties to the 
ADDRESSES section of this rule and encourage them to contact the 
Pacific Islands Fish and Wildlife Office to inquire about the 
Conservation Partnerships program, which may have funding to support 
projects on private lands. Projects and management plans for private 
lands that include commitments to activities that will contribute to 
the long-term conservation of these three endangered species may 
warrant our future review of the critical habitat boundaries.
    (32) Comment: The current and previous Governors of Guam stated 
that the Guam Conservation Initiative proposed by the Government of 
Guam was a better approach to the conservation of these endangered 
species and their habitats than the designation of critical habitat.
    Our Response: To the best of our knowledge, the Guam Conservation 
Initiative is in draft or proposal form and is not a program that has 
been funded or instituted on Guam. We therefore had no basis for 
evaluating the potential for excluding Government of Guam lands based 
on the ``Guam Conservation Initiative.'' However, on June 5, 2004, the 
Service did receive a proposed alternative to critical habitat 
designation from the Government of Guam. We reviewed their proposal and 
excluded Government of Guam lands from critical habitat designation 
because the benefits of designation did not outweigh the benefits of 
exclusion. Please see the ``Analysis of Impacts Under Section 4(b)(2)'' 
section for a details.
    (33) Comment: Several commenters, including the current and 
previous Governors of Guam, stated their belief that the designation of 
critical habitat will be detrimental to existing conservation 
activities because it will result in the loss of the overlay refuge on 
military lands on Guam and the associated cooperative agreements with 
the Air Force and Navy. It was also contended that critical habitat 
would result in the loss of funds and other resources that presently 
are used for conservation projects on these lands because these 
resources will be needed to complete section 7 consultations triggered 
by proposed actions within critical habitat.
    Our Response: The Air Force and Navy lands were excluded from the 
critical habitat designation under sections 4(a)(3) and/or 4(b)(2) of 
the Act, as amended by Section 318 of the fiscal year 2004 National 
Defense Authorization Act. See ``Exclusions from Critical Habitat'' for 
a more detailed discussion of the exclusions.
    (34) Comment: Numerous commenters, including the current and 
previous Governors of Guam and the CNMI Senate, expressed their concern 
that the designation of critical habitat will place a disproportionate 
regulatory burden on local governments and private landowners and that 
private landowners will be subject to stringent Federal regulations. 
These commenters also expressed concern that the designation of 
critical habitat will restrict owners' activities on their private 
lands, will ``lock up'' or restrict access to those lands (e.g., the 
agricultural homestead lots on Rota), or result in the condemnation or 
confiscation of private lands and the transformation of public lands 
into nature preserves or zoos.
    Our Response: Critical habitat designation does not affect land 
ownership or establish a refuge, wilderness, reserve, preserve, or 
other special conservation area. It does not allow government or public 
access to private lands and will not result in closure of the area to 
all access or use. A critical habitat designation does not constitute a 
land management plan. Rather, it triggers the requirement that Federal 
agencies must consult with the Service on activities they authorize, 
fund, or carry out that may affect critical habitat.
    When local government or private landowners seek a Federal permit 
or Federal funding, the Federal permitting or funding agency must 
consult with the Service on actions that may affect listed species or 
designated critical habitat. The draft economic analysis and addendum 
identify the potential Federal actions that may result in consultations 
on the listed species and critical habitat on Guam and Rota over the 
next ten years. The regulatory burden of critical habitat designation, 
in the form of consultation under section 7(a)(2) of the Act, falls on 
Federal government agencies, not directly on local governments or 
private landowners. We anticipate that the majority of projects

[[Page 62965]]

on private or Commonwealth lands probably will go forward unimpeded 
because there will be no Federal nexus. In the rare case where a 
Federal project on private land is likely to result in destruction or 
adverse modification of critical habitat, the Service must provide, 
within a specified time period, reasonable and prudent alternatives 
that will allow the project to avoid adverse modification. Finally, we 
have never intervened in local land use proceedings in the CNMI and do 
not anticipate doing so in the future.
    (35) Comment: The current and previous Governors of Guam commented 
that the military's INRMPs provide them with an alternative that can 
gain these agencies exclusion from critical habitat under the Act. 
Allegedly non-Federal landowners do not have that alternative.
    Our Response: Air Force lands were excluded under section 4(a)(3) 
of the ESA, as amended by subsection (a) Section 318 of the fiscal year 
2004 National Defense Authorization Act, because their INRMP provides a 
benefit to the Mariana fruit bat, Mariana crow, and Guam Micronesian 
kingfisher (see ``Exclusions from Critical Habitat''). This section of 
the Act only applies to military installations. However, any landowner 
can develop a management plan to conserve essential habitat that may 
provide a basis for excluding lands from a critical habitat designation 
under the Act. We refer interested parties to the ADDRESSES section of 
this rule and encourage them to contact our Pacific Islands Fish and 
Wildlife Office to obtain additional information about developing 
management plans for listed species.
    (36) Comment: The previous Governor of Guam stated that Executive 
Order 13175 establishes conditions for designation of critical habitat 
on tribal lands in the United States that are different from conditions 
for designation of the lands in unincorporated territories.
    Our Response: We agree. Executive Order (E.O.) 13175, Consultation 
and Coordination with Indian Tribal Governments (65 FR 67249, November 
9, 2000), pertains only to Indian or Alaska Native tribes as defined in 
the Recognized Indian Tribe List Act of 1994, 25 U.S.C. 479a, and this 
Act does not include the Chamorro people. E.O. 13175 provides general 
guidelines for Federal interaction with these tribes and makes no 
mention of unincorporated Territories; therefore, E.O. 13175 has no 
relevance to this designation of critical habitat.
    (37) Comment: The previous Governor of Guam commented that the 
lands at Ritidian Point not included in the designation must have low 
habitat value in the Service's view, and they therefore should be 
exchanged for lands at Falcona.
    Our Response: Some of the Service-owned lands within the Guam 
National Wildlife Refuge were not included in the proposed designation 
because of a mapping error. All of Service-owned lands at Ritidian 
Point that are part of Guam National Wildlife Refuge are considered 
essential to the conservation of these species and are now included in 
this critical habitat designation.
    (38) Comment: Two commenters stated that the amount of land 
designated on Guam as critical habitat for the Mariana crow amounts to 
as much as 100 times more land per crow than is currently used by each 
human resident of Guam.
    Our Response: Critical habitat is designated based on the 
conservation needs of the species. This includes adequate area for 
foraging and breeding. The size and foraging characteristics of the 
Mariana fruit bat, Mariana crow, and Guam Micronesian kingfisher 
necessitate sufficient area for adequate breeding sites and to obtain 
enough food to survive and reproduce. The designation of critical 
habitat does not preclude other uses of these lands.
    (39) Comment: Several commenters stated that the Service cannot 
designate critical habitat on islands in the same way we do on 
continents; we must take into consideration the limited land base on 
islands and the proportion of the entire land base being designated.
    Our Response: In accordance with section 3(5)(A)(i) of the Act and 
regulations at 50 CFR 424.12, in determining which areas to propose as 
critical habitat, we are required to base critical habitat 
determinations on the best scientific and commercial data available and 
to consider those physical and biological features (primary constituent 
elements) that are essential to the conservation of the species and 
that may require special management considerations or protection. These 
features include, but are not limited to: Space for individual and 
population growth, and for normal behavior; food, water, air, light, 
minerals, or other nutritional or physiological requirements; cover or 
shelter; sites for breeding, reproduction, or rearing of offspring; and 
habitats that are protected from disturbance or are representative of 
the historic geographical and ecological distributions of a species. 
Changing the size of a critical habitat designation to meet a specified 
percentage of a given larger land area elsewhere would result in a 
designation that may be scientifically invalid.
    (40) Comment: Andersen Air Force Base should be excluded from 
critical habitat because (a) the INRMP for the base provides 
substantial protections for the Mariana fruit bat, Mariana crow, and 
Guam Micronesian kingfisher and their habitat on Guam, (b) the Air 
Force has provided draft text to amend its INRMP to include more 
specific projects that will contribute to the long-term conservation of 
these species, and (c) the Air Force has agreed to conduct 
consultations under section 7 of the Act for the Mariana fruit bat, 
Mariana crow, and Guam Micronesian kingfisher and has agreed to 
maintain and improve the primary constituent elements for these species 
on its lands. Little additional benefit will accrue to these species 
with the designation of critical habitat other than the trigger for 
interagency consultation under section 7 of the Act. Furthermore, 
critical habitat designation may have a negative impact on the current 
conservation projects that benefit these species if resources are 
diverted to meet consultation requirements and/or if the Air Force 
removes its lands from the Guam National Wildlife Refuge.
    Our Response: We have excluded Andersen Air Force Base from the 
final critical habitat designation pursuant to the provisions of 
Section 318 of the fiscal year 2004 National Defense Authorization Act.
    (41) Comment: The INRMP for the Navy lands on Guam provides 
substantial protections for the Mariana fruit bat, Mariana crow, and 
Guam Micronesian kingfisher and their habitat on Guam, and these 
protections are superior to those that would be provided by critical 
habitat. This INRMP was prepared in cooperation with the Service, and 
the Service approved it. In the Cooperative Agreement establishing the 
Guam National Wildlife Refuge overlay on Navy lands, the Navy has 
agreed to conduct consultations under section 7 of the Act for the 
Mariana fruit bat, Mariana crow, and Guam Micronesian kingfisher and 
has agreed to maintain and improve the primary constituent elements for 
these species on its lands. Little additional benefit will accrue to 
these species with the designation of critical habitat other than the 
trigger for interagency consultation under section 7 of the Act. 
Furthermore, critical habitat designation may have a negative impact on 
the current conservation projects that benefit these species if 
resources are diverted to meet consultation requirements and/or if the

[[Page 62966]]

Navy removes its lands from the Guam National Wildlife Refuge.
    Our Response: We have excluded the Navy lands from the final 
critical habitat designation under section 4(b)(2) of the Act. See 
``Exclusions from Critical Habitat'' for a more detailed discussion of 
the exclusions.
    (42) Comment: Two commenters, including the acting Commissioner of 
the Marianas Public Lands Authority, expressed a concern that the 
clearing of private land designated as critical habitat will constitute 
``take'' and would therefore be a violation of section 9 of the Act.
    Our Response: Clearing (i.e., removal of vegetation) of any land 
designated as critical habitat does not automatically constitute 
violation of section 9 of the Act. Section 9 prohibits the taking of 
any wildlife species. The term ``take'' means to harass, harm, pursue, 
hunt, shoot, wound, kill, trap, capture, or collect, or to attempt to 
engage in any such conduct (16 U.S.C. 1532 (19).
    (43) Comment: Several commenters, including the acting Commissioner 
of the Marianas Public Lands Authority, requested more time to review 
the proposed rule and draft economic analysis after Supertyphoon 
Pongsona hit Guam and Rota on December 8, 2002. One commenter asked 
that we extend the final deadline for the rule.
    Our Response: We reopened the comment period from January 28 to 
February 18, 2003, to allow the residents of Guam and Rota more time to 
provide their comments once basic services and infrastructure had been 
restored. An extension on the deadline for this final rule could be 
obtained only through a request submitted to the U.S. District Court 
for Guam. On May 30, 2003, the Government of Guam filed a motion to 
extend the deadline for publication of the final rule to allow time to 
develop an alternative to critical habitat designation on Guam. The 
deadline extension was granted by the Guam District Court on June 13, 
2003. On April 5, 2004, the Government of Guam submitted their proposed 
alternative to critical habitat to the Service as ordered by the Guam 
District Court. The court ordered that this final rule be submitted for 
publication in the Federal Register no later than October 18, 2004.
    (44) Comment: The Service should use the draft economic analysis in 
the determination of prudency for critical habitat.
    Our Response: The first step in the critical habitat process, the 
proposed determination of whether or not a designation for any species 
is prudent, is a decision based on biological and conservation 
considerations, not the potential economic impacts of the designation. 
Furthermore, the economic analysis cannot be made in a detailed, 
quantitative fashion until maps of the proposed critical habitat are 
completed. As defined by regulation, prudency examines whether critical 
habitat would harm or benefit the species (see 50 CFR 424.12(a)(1)). If 
critical habitat is prudent, we look at all of the impacts of 
designating specific areas as critical habitat to see if the benefits 
of designation outweigh the benefits of excluding an area from critical 
habitat. Should we determine that critical habitat is not prudent 
because it will not provide additional conservation benefit to the 
species or will result in increased threat to the species, we would not 
conduct an economic analysis. When we do propose critical habitat, we 
then use the economic analysis to assess possible exclusions under 
section 4(b)(2) of the Act.
    (45) Comment: Current enforcement of the Act on Rota is sufficient 
to protect the Mariana crow and its habitat.
    Our Response: The Service is required by law to designate as 
critical habitat those areas which are essential to the long-term 
conservation of listed species, unless the economic or other impacts of 
designation outweigh the conservation benefits. All critical habitat 
designated on Rota is currently occupied by crows. Activities that may 
result in the destruction or adverse modification of critical habitat 
include those that alter the primary constituent elements of the 
designated area to an extent that its value for both the survival and 
long-term conservation of the Mariana crow is appreciably diminished 
(see ``Critical Habitat'' section of the rule for further discussion).
    (46) Comment: Several commenters expressed their belief that 
designation of critical habitat for the Mariana crow on Rota will cause 
significant resentment in the local community and government, provide a 
disincentive for participation in voluntary conservation projects, and 
create obstacles to future crow conservation efforts on the island.
    Our Response: We acknowledge that, despite the Service's outreach 
activities, considerable misapprehension remains about the impacts of 
critical habitat designation on land use on Rota. Nevertheless, absent 
documentation that the designation of critical habitat would increase 
the threat to the Mariana crow, or be offset by adverse economic or 
other impacts, we have no basis either for changing our prudency 
determination or for excluding lands on Rota from critical habitat.
    We also reiterate that a critical habitat designation does not 
affect land ownership or establish a refuge, wilderness, reserve, 
preserve, or other special conservation area. It does not allow 
government or public access to private lands and will not result in 
closure of the area to all access or use. A critical habitat 
designation does not constitute a land management plan. Rather, it 
triggers the requirement that Federal agencies must consult with the 
Service on activities they take or fund that might affect critical 
habitat, and on Rota this requirement is already triggered by the 
presence of Mariana crows throughout the area designated as critical 
habitat.
    We recognize that critical habitat is only one of several tools 
provided in the Act to accomplish long-term conservation of listed 
species and that this goal is best achieved through cooperation between 
the Service and the community. We hope that members of the Rota 
community interested in initiating conservation projects for the 
Mariana crow will be guided by this critical habitat designation to 
areas where their efforts will be of greatest benefit. We welcome ideas 
and proposals for conservation projects and will seek funding to 
support such projects. We continue to work closely with the people of 
Rota and the CNMI government to develop HCPs, and we have awarded the 
CNMI a total of $583,522 to facilitate this effort. We may reevaluate 
critical habitat boundaries after HCPs are completed.
    (47) Comment: The sole basis for the Service's reversal of its 1991 
determination (that designating critical habitat for these species was 
not prudent) appears to be losses that the Service has experienced in 
other, significantly different litigation.
    Our Response: Our rationale for our determinations is presented in 
the proposed rule (67 FR 63738), under the section entitled ``Prudency 
Determination.'' With respect to Guam and Rota, the Service is 
obligated to comply with the decisions of the Ninth Circuit Federal 
Court of Appeals.
    (48) Comment: As long as the little Mariana fruit bat, Guam 
broadbill, and Guam bridled white-eye are listed, they are entitled to 
the full protection of the Act, and the Service should propose critical 
habitat for them. The determination that critical habitat is not 
prudent for these species is a ``back door approach'' to delisting 
them.
    Our Response: The assumption that all species listed under the Act 
still survive confuses the likely reality of extinction with the 
regulatory process of delisting extinct species under the Act.

[[Page 62967]]

Our statements in the proposed rule that these three species likely are 
extinct are based on the well-documented last sightings, decades ago, 
and records of these species and repeated, thorough efforts by 
scientists to find them. The final rule delisting the Guam broadbill 
was published on February 23, 2004 (69 FR 8116). The delisting of the 
other two is not currently scheduled. Given the Service's large listing 
and critical habitat workload, we must make priority decisions that 
offer the greatest benefit to those species that survive.
    (49) Comment: If designating critical habitat is not shown to harm 
the (likely extinct) species, the Service is bound to designate their 
critical habitat.
    Our Response: There are two criteria for determining that a 
critical habitat designation is not prudent. One is that the 
designation would result in taking or vandalism of the species, and the 
other is that critical habitat is not beneficial to the species. 
Designation of critical habitat will not benefit likely extinct 
species.
    (50) Comment: The Service cannot exclude unoccupied areas from 
critical habitat based on ``special management'' under section 3(5)(A) 
of the Act because this criterion only applies to lands occupied by the 
species at the time of their listing and because this management cannot 
replace the benefits of section 7 consultation.
    Our Response: We have excluded the Navy lands from the final 
critical habitat designation under section 4(b)(2) of the Act. Please 
see the section of this rule entitled ``Exclusions from Critical 
Habitat'' for a more detailed discussion of the exclusions.
    (51) Comment: Several commenters asked if their comments mattered 
or if decisions about the critical habitat designation had already been 
made.
    Our Response: Public comments are an opportunity for the Service to 
obtain additional information about the species and areas involved in 
the critical habitat designation, as well as about the questions and 
concerns of landowners and other stakeholders. We do our best to 
incorporate all relevant information we receive and to address 
individual concerns and questions. The final designation of critical 
habitat reflects both the requirements of the law and the input from 
stakeholders insofar as it is possible to incorporate this input 
without compromising the biological basis for the designation.
    (52) Comment: The proposed rule in the Federal Register is too 
technical and difficult to understand and should be translated to the 
Chamorro language.
    Our Response: The Service strives to make its public documents as 
simple as possible without compromising their scientific integrity and 
legal sufficiency. In all of our documents, we strive to use plain 
language in government writing. Although we did not make the rule 
available in other languages, we did produce extensive outreach 
materials to facilitate the public's understanding of the proposed 
designation. For example, we produced an illustrated fact sheet about 
the proposed rule entitled ``Critical Habitat for Six Species of 
Mariana Island Birds and Bats,'' which was available at the public 
meetings and hearings and was mailed with the proposed rule to a total 
of 127 interested parties. Please refer to the ``Previous Federal 
Action'' section of this rule for a description of the Service other 
outreach efforts for this designation. We continue to work with the 
public to provide information and promote a better understanding about 
critical habitat. We will continue ongoing discussions to help the 
local communities better understand the critical habitat designations 
as well as to learn more about the Mariana Crow, Mariana fruit bat, and 
Guam Micronesian kingfisher.
    (53) Comment: How will critical habitat affect harvesting of plants 
for cultural uses?
    Our Response: Critical habitat will have no effect on such 
collecting if it takes place on non-Federal lands and involves no 
Federal money or authorization.
    (54) Comment: The ``essential habitat'' for the Mariana crow 
outlined on Rota in the draft revised recovery plan provides a good 
basis for collaboration with the Rota community to conserve this 
habitat and improve its quality for crows. Such a cooperative, 
voluntary approach is liable to meet with greater conservation success 
than the imposition of critical habitat.
    Our Response: We hope that these conservation activities will take 
place regardless of this critical habitat, which is only one of many 
potential tools for addressing long-term conservation of the crow on 
Rota. The Service recognizes that to improve the current condition of 
Mariana crow on Rota, it is insufficient to simply regulate harmful 
activities. Rather, it is necessary to carry out active management 
measures to confer a benefit on the species of concern, such as habitat 
manipulation, exotic species control, or simply allowing access for the 
purposes of reintroduction (Bean 2002).
    (55) Comment: If military lands on Guam are excluded from critical 
habitat, the Government of Guam lands and private lands designated as 
critical habitat may become commensurately more important.
    Our Response: The Air Force and Navy lands identified as essential 
habitat but excluded under sections 4(a)(3) and/or 4(b)(2) of the Act, 
while not designated critical habitat, would remain part of the total 
acreage of habitat essential to the conservation of these species on 
Guam.
    (56) Comment: Several commenters stated that the Government of 
Guam's proposed alternative to critical habitat designation does not 
provide an adequate management plan for its conservation lands and is 
not an acceptable alternative to critical habitat designation on 
Government of Guam lands.
    Our Response: We agree that the Government of Guam's proposed 
alternative to critical habitat designation is not comparable to an 
INRMP developed for military lands. However, we believe that as a sign 
of the desire of the Government of Guam to increase cooperation with 
the Service on the conservation and recovery of the Mariana fruit bat, 
Mariana crow, and Guam Micronesian kingfisher, particularly when 
considered against past relations, it is a significant positive step. 
We also believe that implementation of this plan will benefit these 
species. Therefore, we have excluded Government of Guam lands from 
critical habitat designation. See ``Analysis of Impacts Under Section 
4(b)(2)'' for additional information.
    (57) Comment: Several commenters stated that very few of the 
projects in the Government of Guam's proposed alternative to critical 
habitat designation are new. Therefore, this proposal offers little 
additional benefit to the species. In addition, these commenters also 
stated that there is no guarantee that the projects outlined in the 
proposal will be implemented because Guam lacks the funding and staff 
to implement many of the actions.
    Our Response: We agree that some of the projects outlined in the 
Government of Guam's proposed alternative to critical habitat are 
ongoing projects. However, we disagree that the Government of Guam's 
proposed alternative to critical habitat provides little additional 
benefit to the species. Therefore, we have excluded Government of Guam 
lands from critical habitat designation. See ``Analysis of Impacts 
Under Section 4(b)(2)'' for additional information.
    (58) Comment: Two commenters stated that ungulate eradication is a 
high priority for Guam's conservation lands but is not addressed in 
their proposed

[[Page 62968]]

alternative to critical habitat designation.
    Our Response: We agree that ungulate eradication is not 
specifically addressed in the Government of Guam's proposed 
alternative. However, their alternative does include ungulate control-
related activities such as developing comprehensive management plans 
for Philippine sambar deer and feral pigs that could include 
eradication of ungulates on Government of Guam conservation lands.
    (59) Comment: One commenter stated that Guam's proposal does not 
discuss how long Guam's conservation lands will be protected and how 
Guam will prevent and prosecute illegal encroachment on their 
conservation lands.
    Our Response: We agree that the Government of Guam's proposed 
alternative to critical habitat designation does not specifically 
address the duration in which their conservation lands will be 
protected for endangered species conservation or how protection will be 
enforced. However, we still believe that that the benefits of excluding 
Government of Guam lands from critical habitat designation outweigh the 
benefits of inclusion. Therefore, Government of Guam lands were 
excluded under section 4(b)(2) of the Act. See ``Analysis of Impacts 
Under Section 4(b)(2)'' for additional information.
Issue 3: Other Relevant Issues
    (60) Comment: Two reviewers observed that although the rule 
published by the Service proposing critical habitat on Guam and Rota 
contained clear and meticulous explanations of what critical habitat 
is, how it works, and how little threat it poses to landowners, this 
rule nevertheless has resulted in misunderstandings and significant 
resentment and frustration in the local communities. These reviewers 
suggest that the Service should engage in more public outreach efforts 
and present additional and more summarized and simplified materials 
explaining the designation to gain the understanding and support of the 
local people on Guam and in the CNMI.
    Our Response: Significant outreach efforts were made regarding this 
critical habitat rule (see our response to Comment 33) in an effort to 
resolve misconceptions and allay public concerns. We produced an 
information sheet summarizing the proposed rule that was mailed to all 
interested parties and that was available at the public meetings and 
hearings. At public meetings, we were available to answer questions and 
engage in discussion that is prohibited at hearings.
    (61) Comment: One reviewer stated that if the proposed critical 
habitat delineation already reflects concessions by the Service to 
political or socioeconomic considerations, this should have been 
clearly articulated in the proposed rule.
    Our Response: The proposed critical habitat was delineated based on 
biological and other conservation-related criteria, without considering 
potential economic or political impacts of a critical habitat 
designation. As required by the Act, economic and other relevant 
impacts have been considered in this final designation. The ``Critical 
Habitat Designations'' section of this rule describes in detail how we 
defined the primary constituent elements for each of the three species, 
how we identified areas that are essential to the conservation of these 
species, and how we applied criteria used to exclude some of the 
proposed lands from the proposed critical habitat.
    (62) Comment: Several commenters, including the Governor of the 
CNMI, the Rota delegation to the CNMI Legislature, and the CNMI Senate, 
wrote that the CNMI government has policies and legislation in place 
that demonstrate a commitment to the conservation of Rota's natural 
environment and render critical habitat unnecessary.
    Our Response: We lack substantial documentation of conservation 
activities or commitments to conservation activities on Rota that 
address the long-term conservation of the Mariana crow.
    (63) Comment: Two commenters, including the acting Commissioner of 
the Marianas Public Lands Authority, wrote that lands on Rota described 
as ``public'' in the proposed rule actually belong collectively to 
people of Mariana descent and are managed for these people by the 
Mariana Public Lands Authority.
    Our Response: In a meeting with the Service in Honolulu on January 
14, 2003, representatives of the Mariana Public Lands Authority 
clarified the status of the lands they manage on behalf of the people 
of the Mariana Islands and discussed other concerns and questions they 
had about this critical habitat designation.
    The references to ``public lands'' in sections 1.2.6, 4.1.2.3, 
6.2.2, 6.2.2.1, and 6.3.2.3 and Figure 6-2 of the DEA are to those 
lands identified in Article XI, Section 1, of the Commonwealth 
Constitution as ``public lands belonging collectively to the people of 
the Commonwealth who are of Northern Marianas descent.'' When referring 
to Rota, the term ``public lands'' is intended to be used in the DEA as 
it is used in the Commonwealth Constitution.
    We acknowledge the slightly inaccurate description of the term in 
section 1.2.6 of the DEA, which refers to ``public lands owned by 
CNMI.'' This phrase was intended to identify ``public lands'' as 
described in the paragraph above. The identification of the CNMI 
government as ``owner'' of public lands on Rota is intended to describe 
the role of the Marianas Public Lands Authority as a government entity 
representing the people of the Commonwealth who are of Northern 
Marianas descent. The clarification of the term ``public lands'' does 
not alter the conclusions on economic impact, as presented in sections 
6.2.2 and 6.3.2 of the DEA.
    (64) Comment: Will critical habitat delay the airport expansion 
project on Rota?
    Our Response: No, a small area proposed as critical habitat that 
overlapped the action areas for the proposed airport expansion has not 
been included in this final designation because we have determined that 
it is not essential to the long-term conservation of the Mariana crow. 
At the time of this writing, the Service is involved in section 7 
consultation with the Federal Aviation Administration on the airport 
expansion. Independent of critical habitat, both Federal agencies 
agreed that the project may affect the Mariana crow, and thus entered 
into consultation to ensure the airport expansion project is in 
compliance with the Act.
Issue 4: Economic Issues
    (65) Comment: One reviewer stated that the DEA does not consider 
the full range of activities that could be affected by critical 
habitat.
    Our Response: A comprehensive and systematic approach was used to 
identify the activities likely to occur within the 10-year assessment 
period. Data collection methodology is presented in Chapter 5 of the 
DEA. For Guam, we identified potentially affected landowners and land 
managers with information from the Government of Guam's Division of 
Land Management and Department of Revenue and Taxation; we notified 
these owners and managers, in writing, of the proposed critical habitat 
designations and our desire to meet with them to obtain information for 
use in the DEA; and we conducted either telephone interviews or in-
person meetings with potentially affected landowners and managers to 
identify reasonably foreseeable activities within the 10-year 
assessment period.

[[Page 62969]]

 For Rota, meetings were requested and conducted with representatives 
from CNMI and Rota government offices because most of the island of 
Rota is comprised of publicly owned lands. Additional activities on 
Guam and Rota were identified by reviewing the documents listed in the 
references in the DEA addendum, conducting additional inquiries with 
local and Federal government agencies, and reviewing information 
received during the public comment period.
    (66) Comment: One reviewer asked why the cost of section 7 is 
estimated to be so high for the Rota Airport extension when the 
proposed project area lies outside of the critical habitat boundary.
    Our Response: Section 6.2.2.1.1 of the DEA and section 3.3 of the 
DEA addendum describe costs associated with the proposed extension of 
the Rota Airport. The estimated costs in the DEA were based on 
government costs associated with conducting section 7 consultations; a 
biological survey, presumed because of the belief that neighboring 
areas contained primary and secondary breeding habitats for the Mariana 
crow; and annual biological monitoring. These costs were estimated to 
total $111,650 over a 10-year period.
    Since the DEA was published, the Service was informed by the 
consultants preparing the National Environmental Policy Act (NEPA) 
environmental assessment (EA) that the western runway protection zones 
would indeed fall within proposed critical habitat and that the 
affected area (approximately 300 by 500 ft (91 by 152 m)) may need to 
be cleared to extend the grassed and fenced airport area. A larger area 
extending further west may be modified in such a way that the height of 
the forest does not exceed the elevation of the runway (585 ft (178 m) 
above sea level).
    As described in section 3.3 of the DEA addendum, the consultants 
preparing the EA informed us that the document will provide more 
information for use in the section 7 consultation process. Without the 
benefit of details in an EA, the Service anticipates that a formal 
section 7 consultation with the Federal Aviation Administration may be 
necessary, suggesting section 7 costs in the medium range (from Table 
6-1 in the DEA) with no annual biological monitoring. The cost of a 
biological survey considered in the DEA ($7,800) remains as a cost of 
the section 7 consultation. The revised section 7 consultation cost is 
$33,050 over a 10-year period. This cost is $78,600 less than the 
$111,650 estimated in the DEA.
    (67) Comment: One reviewer noted that small economic entities will 
be largely unaffected by critical habitat.
    Our Response: Based on the DEA and its addendum, a substantial 
number of small entities are not expected to be significantly impacted 
by the critical habitat designation. As indicated in section 6.4 of the 
DEA and section 5 of its addendum, entities affected by the intended 
designation are Urunao Resort Corporation (Guam), a Chamorro family 
(Guam), Marianas Agupa Inc. (Rota), and individual CNMI residents 
(Rota). Since the DEA was published, both the Municipality of Rota and 
Marianas Pro-Plan International were identified as small entities 
directly affected by critical habitat. These entities represent a very 
small fraction of the total number of the small entities on Guam and 
Rota, and they therefore are not considered a substantial number of 
small entities as suggested in the guidance on implementing the 
Regulatory Flexibility Act/Small Business Regulatory Enforcement 
Fairness Act guidance.
    (68) Comment: Several commenters stated their belief that critical 
habitat will have major impacts on private landowners, such as project 
redesign, acquisition of easements (and associated paperwork), property 
devaluation associated with critical habitat, and the need for a 
typical landowner to hire a consultant to ``overcome the multitude of 
regulatory hurdles he will encounter'' once critical habitat is 
designated. One commenter stated that these costs will amount to 10 to 
100 times the estimated figure, and another stated that the estimate of 
$35,000 in the draft economic analysis for impacts of critical habitat 
to private landowners on Guam is a gross underestimate. Another 
commenter stated that the designation of critical habitat will prevent 
landowners from gaining $2 million worth of income annually due to a 
perception that critical habitat will lead to the condemnation of land. 
The commenters believe that the Service has not adequately identified 
or assessed these impacts.
    Our Response: As identified in section 6.1 of the DEA addendum, the 
Service comprehensively and systematically attempted to obtain input 
from potentially affected landowners and managers, including private 
landowners. Activities likely to occur within the 10-year assessment 
period were identified and incorporated in section 6.2.1.4 of the DEA. 
Sections 3 and 4 of the DEA addendum provide further evaluation of 
potential impacts to private landowners based on information received 
during the DEA public comment period. These include impacts on Federal 
funding, loans, and insurance eligibility; impacts on property value; 
condemnation of land; and costs to investigate implications of critical 
habitat on private property.
    Potential section 7 consultation costs associated with Federal 
funding, loans, and insurance are evaluated in section 3.1 of the DEA 
addendum. In general, Federal funding or loans for new construction 
require consultation, and because very few Federal mortgage insurances 
are provided for new construction, consultation is not likely for 
Federal mortgage insurance.
    Property value losses associated with critical habitat, discussed 
in section 4.2 of the DEA addendum, may be based on facts and an 
accurate assessment of the implications of critical habitat or on 
perceptions that the designation will cause significant changes in 
market value and economic benefits. Based solely on direct compliance 
costs, a decrease in private property value due to critical habitat 
designation is expected to be small. The reason for this is that few 
projects and activities in these areas would be subject to 
consultations, and project modifications are not expected to be 
burdensome. Additional effects on property values (e.g., stigma 
effects) are described in Section 4.2.1 of the DEA addendum.
    Section 4.3 of the DEA addendum states that critical habitat 
designation does not result in the condemnation of land or any other 
form of land acquisition by the Service. On occasion, the Service does 
purchase land, e.g., for a wildlife refuge, but this would be a 
separate action from critical habitat designation. As such, any land 
purchase should be evaluated at the time it is proposed and should be 
based on what is actually proposed. When the Service does purchase 
private property, e.g., to establish a National Wildlife Refuge, the 
normal practice is to do so only when (1) the landowner is willing to 
sell the land, and (2) the price and other terms are acceptable to the 
landowner. Finally, the Service currently has no plan to purchase land 
on Guam.
    Regarding costs associated with investigating the implication of 
critical habitat on private property, landowners that can afford 
professional services may feel it necessary to retain counsel, land 
surveyors, biologists, and other experts to determine the implications 
of the designation on their property. Costs associated with these 
investigations are discussed in detail in section 4.4 of the DEA 
addendum. The total cost ranges from roughly $216,630 to $738,700 on 
Guam and $75,690 to $258,100 on Rota for all landowners whose property 
falls

[[Page 62970]]

within proposed critical habitat boundaries.
    (69) Comment: The previous Governor of Guam stated that the 
analysis of economic impacts to private landowners must be based not on 
current conditions (limited access) but on the assumption that the 
unfettered access ordered by the Federal court were actually granted, 
which would increase the value of the property.
    Our Response: Sections 6.2.1.4.1 and 6.2.1.4.2 of the DEA provide 
more detailed descriptions of existing conditions. Access to Uranao and 
Jinapsan properties along the northern coastlines of Guam requires 
travel through Andersen Air Force Base. Current travel restrictions on 
the base are solely a function of national security concerns 
implemented by the base. For this reason, we believe it appropriate to 
assume that unfettered access represents the current or baseline 
condition. It is possible that different current or baseline conditions 
could change the potential economic impacts from this designation. 
However, we selected what we believe to be the most accurate 
description of baseline conditions.
    (70) Comment: Several commenters, including the Governor of the 
CNMI, the CNMI Senate, the Rota Delegation to the CNMI Legislature, and 
the acting Commissioner of the Mariana Public Lands Authority, observed 
that the section 7 consultation burden generated by critical habitat 
will impede projects on private lands that involve Federal permits for 
infrastructure development, Federal Highway Administration funds for 
primary village roads, Department of Veterans Affairs (VA) mortgage 
loans, or Federal mortgage insurance. These agencies will not pay to 
send survey teams to the Mariana Islands to conduct the necessary 
studies (to formulate biological assessments, etc.).
    Our Response: Sections 6.2.1.4 and 6.2.2.2 of the DEA describe 
projects on private lands on Guam and Rota for which the potential 
impacts of proposed critical habitat were originally evaluated. The 
impact of the potential section 7 nexus of Federal funding for private 
construction on lands proposed for designation has been evaluated with 
additional information in section 3 of the DEA addendum. Potential 
impacts vary between agencies and are discussed individually below.
    The Federal Highway Administration annually gives Guam $13 million 
and CNMI $3 million (of which approximately $400,000 is allocated to 
Rota). Designation of critical habitat would not impede the funding but 
may have an impact on which projects the local government chooses to 
fund. The costs of section 7 consultation and any other required 
environmental compliance would be withdrawn from the same grant.
    Economic impacts of critical habitat associated with Federal 
Highway Administration funding are unlikely to be significant on Guam. 
As discussed in section 3.1.1 of the DEA addendum and based on the Guam 
2010 Highway Master Plan (Wilbur Smith Associates 1992), new roadway 
projects and road improvements are more likely to be in demand in 
heavily traveled areas outside of proposed critical habitat. The cost 
of consultations estimated in section 3.1.1 of the DEA addendum would 
represent a relatively minor cost, approximately 0.1 percent, relative 
to the Federal Highway Administration $13 million grant provided to 
Guam. Based on interviews with Rota government representatives, 
projects planned for the next 10 years were identified, including one 
roadway project. Consultation costs associated with Federal Highway 
Administration funding on Rota, estimated in section 6.2.2.1.2 of the 
DEA, represent two percent of the $400,000 grant allocated to Rota.
    The recent history of VA mortgage guarantees and home loans differs 
between Guam and Rota. On Guam, the VA provides mostly mortgage 
guarantees for existing structures, not new construction. For this 
reason, and because most lenders do not use the VA for new construction 
loans, VA mortgage guarantees on Guam are not likely to be affected by 
critical habitat as it was proposed. On Rota, home loans have been 
provided for new construction projects. Based on the VA home loans 
provided since 1994, it is reasonable to project that one to two VA 
home loans could occur in isolated areas in critical habitat in the 
next 10-year period. Direct impacts and costs associated with section 7 
consultations were estimated in section 3.1.2 of the DEA addendum.
    Section 3.1.3 of the DEA addendum addresses U.S. Department of 
Housing and Urban Development (HUD)/Federal Housing Administration 
programs that exist on Guam and Rota. These include HUD grants 
(Community Development Block Grants), HOME Investment Partnership 
Program, Emergency Shelter, and other competitive grants under Homeless 
Assistance) and Federal Housing Administration mortgage insurance. 
Based on the findings in section 3.1.3 of the DEA addendum, HUD grant 
projects are unlikely to occur in undeveloped areas that are likely to 
be subject to requirements associated with critical habitat. Another 
program under HUD, the Federal Housing Administration mortgage 
insurance program, assists individuals with obtaining a loan. It has 
been used about twice in 2002 on Guam, used very little in the last 10 
years on Guam, and had not been used at all in the last 10 years on 
Rota. Because HUD-supported projects are unlikely to occur in 
undeveloped areas and are infrequently used, together with the fact 
that HUD endorsements for single-family home mortgage insurance are 
listed in their environmental procedures as categorical exclusions that 
are not subject to the related Federal environmental laws and 
authorities, it is unlikely that section 7 consultation would occur.
    (71) Comment: One commenter stated that critical habitat 
designation will prevent the development of real estate on CLTC lands 
because lending institutions will not take risks on loans for 
development of lands encumbered by special environmental/conservation 
status. This status creates too much risk of lawsuits. This commenter 
stated that they would choose not to be involved in projects within 
designated critical habitat.
    Our Response: The economic costs associated with the loss of 
planned development on CLTC lands in critical habitat is addressed in 
section 4.1 of the DEA addendum. Primary lending institutions, 
including the HUD Direct Home Loan program, are likely to request that 
the prospective buyer consider other properties as it is in their 
interest, or it is their requirement (as in the case of HUD's 
programs), to avoid properties with site encumbrances. Lenders will 
generally look to unencumbered property for development (Hirokoshi in 
litt. 2003). If there is no option, it is likely that additional 
requirements would be needed to mitigate the risks of project 
development (Kuiokoa, in litt. 2003). Depending upon the situation, 
lenders may loan less money for projects with environmental 
encumbrances than for those without such encumbrances (Hirokoshi, in 
litt. 2003).
    One lender indicated that the biggest concern for lenders is that 
critical habitat will decrease marketability and value of the property. 
In the absence of documented effect based on critical habitat, this 
concern is based on experience with properties associated with 
wetlands. Another concern identified was that environmental regulations 
may change due to evolving scientific information. Potential property 
value losses for land in critical habitat are discussed in section 
4.2.2 of the DEA addendum.

[[Page 62971]]

    While it is prudent for lenders to avoid risks on loans for 
development of lands encumbered by special environmental/conservation 
status, it is more likely that real estate development on CLTC lands 
will be impeded by CLTC lease requirements, which limit lessees to 
people of Chamorro descent. Because of this limitation, CLTC practices 
do not abide by the Fair Housing Law, which prohibits discrimination in 
housing because of race or color, national origin, religion, sex, 
familial status, or handicap. Lack of implementation of the Fair 
Housing Law prevents use of government-sponsored enterprises, such as 
the Government National Mortgage Association (Ginnie Mae) and the 
Federal Home Loan Mortgage Corporation (Freddie Mac). Federal Housing 
Administration mortgage insurance and VA loans are available only to 
lenders and borrowers whose projects abide by the Fair Housing Law, 
although attempts to obtain exceptions for native Chamorros may be 
underway. Such an exception could occur as exceptions have been made 
under the VA loan program for native Americans.
    If Chamorros were to be exempted from the requirements of the Fair 
Housing Law, designation of critical habitat would represent an 
additional encumbrance that will need to be evaluated by prospective 
lenders. Because many of the lenders would look to secondary mortgage 
markets, approximately half of which are government-sponsored 
enterprises, lenders are required to consider requirements of these 
government-sponsored enterprises. However, as discussed in sections 3.2 
and 4.1 of the DEA addendum, it is unlikely that critical habitat 
designation would result in additional costs or processing solely from 
attempts to obtain government-sponsored enterprises mortgages, Federal 
Housing Administration mortgage insurance, or VA loans.
    (72) Comment: Several commenters stated their belief that the 
designation of critical habitat will severely impede economic 
development, improvement of basic infrastructure, and the provision of 
basic needs to the people of Guam and Rota.
    Our Response: As discussed in sections 3.1 and 6.6 of the DEA 
addendum, Federal agencies, such as Federal Highway Administration and 
HUD, were contacted to obtain information about their past practices 
and requirements with respect to environmental regulations. In general, 
the local agencies responsible for allocating Federal funds to local 
projects consider environmental issues prior to approving projects for 
funding. Most Federally funded projects have occurred in developed 
areas to meet community needs, as is the case with HUD Community 
Development Block Grants funds. Development projects occurring within 
the 10-year assessment period are described in Chapter 6 of the DEA and 
include: (1) Reuse of the former Federal Aviation Administration 
Housing parcel on Guam, (2) improvements at the Rota International 
Airport, (3) roadway improvements to Route 100 on Rota, (4) roadway 
improvements to Routes 5 and 12 on Guam, (5) development of the 
Marianas Agupa Golf Course, (6) development of a solid waste disposal 
landfill on Rota, and (7) implementation of the Homesteads program on 
Rota. Of the projects with a possible Federal nexus, all are expected 
to proceed even with critical habitat designation.
    (73) Comment: Two commenters stated that the economic analysis 
makes an incorrect assumption that the CNMI government and/or the 
municipality of Rota are not ``small entities.''
    Our Response: As discussed in section 5 of the DEA addendum, we 
have determined that the CNMI government is not a small entity under 
the Regulatory Flexibility Act (Title 5, U.S. Code sections 601-612), 
as amended by the Small Business Regulatory Enforcement Fairness Act of 
1996, because it governs a population of greater than 50,000 people. 
The Regulatory Flexibility Act/Small Business Regulatory Enforcement 
Fairness Act defines ``small government jurisdictions'' as the 
government of a city, county, town, school district, or special 
district with a population less than 50,000. However, based on 
population, the Municipality of Rota can be considered a small entity.
    Using the U.S. Environmental Protection Agency guidance, ``1999 
Revised Regulatory Flexibility Act/Small Business Regulatory 
Enforcement Fairness Act Guidance for Environmental Protection Agency 
Rulewriters,'' the recommended quantitative method for evaluating the 
economic impact of a rule on small government entities is to evaluate 
the annualized compliance costs as a percentage of annual government 
revenue. The estimated annual cost of proposed critical habitat 
designation to the Municipality of Rota, based on the 10-year estimate 
of section 7 consultation and project modification costs, is $13,860. 
The annual municipal operating budget for Rota is estimated at $13.5 
million. Using the Environmental Protection Agency methodology 
described above, the costs associated with section 7 consultation and 
project modification would comprise 0.1 percent of Rota's annual 
municipal operating budget. A more detailed discussion of costs is 
provided in section 5 of the DEA addendum.
    (74) Comment: One commenter recommended the addition of a synopsis 
at the beginning of the economic analysis.
    Our Response: The commenter's suggestion that the Executive Summary 
of the DEA should include a brief synopsis of the evaluation addressing 
the efficacy and cost/benefit ratio of the proposed designation is 
appropriate for improving the readability and ease of understanding of 
the DEA. However, presentation of an accurate cost/benefit ratio is not 
possible because some of the costs and many of the benefits are not 
quantified. This reflects the uncertainty about the outcome of the 
designation of critical habitat and the fact that many of the benefits 
of critical habitat are best expressed in biological terms, for which 
an economic value has not been determined.
    (75) Comment: One commenter observed that the economic analysis 
addresses only the impacts of section 7 consultation, only weakly 
characterizes the economy of Rota, and fails to consider the ``backlash 
effect'' of critical habitat designation on Rota and other indirect 
effects. This commenter asked that the comment period be reopened 
subsequent to a revision of the economic analysis.
    Our Response: As stated in the Executive Summary, the DEA addresses 
only section 7-related economic impacts and that costs related to other 
sections of the Act are outside the scope of the analysis. Because the 
Act requires the Service to consider the ``benefits of inclusion vs. 
the benefits of exclusion'' of critical habitat within any particular 
parcel, it is appropriate to address section 7 impacts. Additional 
indirect impacts associated with the designation of critical habitat 
are addressed in section 6 of the DEA and in section 4 of the DEA 
addendum.
    Information used to characterize the economy of Rota was obtained 
through a comprehensive literature search. Unfortunately, very little 
information specific to Rota was available. Since the publication of 
the DEA, additional information has been identified and incorporated 
into the sections of the DEA addendum relating to Rota. Such data 
include: the annual operating budget of Rota; visitor counts; numbers 
of families below the poverty level; and breakdown of personal income 
by age.
    Further consideration of this additional economic data does not

[[Page 62972]]

substantially alter the findings in the DEA. In the case of 
reevaluating the regulatory flexibility analysis, considering Rota as a 
small entity, the analysis demonstrated that the proposed designation 
of critical habitat will not have a significant economic impact on 
Rota. As described in section 5 of the DEA addendum, the potential 
costs associated with the designation of critical habitat are estimated 
to be only 0.1 percent of Rota's annual municipal operating budget.
    Indirect cost impacts associated with a potential ``backlash 
effect'' of critical habitat designations on Guam and Rota are 
presented in Sections 6.3.1.4 and 6.3.2.2 of the DEA. Section 6.3.1.4 
introduces the basis for the strong negative sentiments associated with 
Federal restrictions on land on Guam. Economic impacts associated with 
this ``backlash effect'' may include those associated with drawn out 
negotiations and delays in Federal project schedules. As described in 
the DEA, the cost of negotiations and delays to the Federal government 
could be significant. The potential for residents of Rota to react 
negatively toward the Mariana crow is addressed in section 6.3.2.2 of 
the DEA. In the DEA, it is acknowledged that ``should the scenario of 
impacts on the Mariana crow due to critical habitat rule-making be 
realized, the effects and costs would be great, essentially causing the 
intentions of critical habitat to back-fire.'' Further discussion of 
``backlash'' effects is constrained by the inability to anticipate or 
quantify what potential actions may occur.
    (76) Comment: One commenter suggested that the economic analysis 
discussion of Rota's population should separate U.S. passport holders 
from alien guest workers.
    Our Response: Data from the 2000 U.S. Census, a 1997 U.S. 
Department of Commerce Economic Census of Outlying Areas, and a 2001 
Bank of Hawaii Commonwealth of the Northern Mariana Islands Economic 
Report were reviewed to determine the social and economic makeup of 
Rota. Although census data identified 1,017 non-citizen residents out 
of the population of 3,283 people, the available data do not 
characterize the employed workforce of 1,591 people by citizenship.
    (77) Comment: One commenter advised that the economic analysis 
should more clearly characterize the economy of Rota and carefully 
distinguish between statistics for Rota and statistics for the CNMI as 
a whole.
    Our Response: We agree that the economic character of Rota is 
different from that of CNMI as a whole and that the CNMI Gross Island 
Product is not a relevant figure to use in describing Rota's economy. 
However, as the commenter acknowledged, tourist arrival and hotel 
occupancy data for Rota are limited. The accuracy of available tourism 
data is suspect based on the lack of distinction of airport arrivals 
between tourists and business travelers arriving at the airport and the 
non-participation of Rota's hotels in Hotel Association of the Northern 
Mariana Islands, the organization which provided occupancy rates for 
CNMI hotels. Information from the 2000 CNMI Statistical Yearbook states 
that there were 9,826 visitors to Rota in 2000, down from 12,437 in 
1999. The data in the economic analysis for government and private 
sector employment are from the 2000 U.S. Census. According to the 
census data, when employment by government is compared to employment in 
the private sector as a whole, there is greater private sector 
employment (62.9 percent vs. 35.7 percent in government). However, when 
employment figures are evaluated by industry (e.g., public 
administration, manufacturing, construction, wholesale, retail, 
service, etc.), public administration is the leading industry.
    In addition to attempting to obtain information specific to Rota, 
the potential economic impact to small entities, including the 
Municipality of Rota, is reevaluated in section 5 of the DEA addendum. 
This analysis concluded that the economic impact of proposed critical 
habitat to Rota would be 0.1 percent of the annual municipal budget.
    (78) Comment: One commenter stated that text in the economic 
analysis regarding Coastal Resource Management Office requirements and 
the potential for this agency to change their regulations as a result 
of the critical habitat designation is not valid and should be deleted.
    Our Response: As discussed in section 4.5 of the DEA addendum, 
while the Coastal Resource Management Office did not provide specific 
comments on this DEA addendum, it is believed that the designation of 
critical habitat would not become an Area of Particular Concern, based 
on public comment and further review of the relevant regulation 
(Coastal Resource Management Regulations, as amended 1990). For this 
reason, the designation of critical habitat would not increase the 
number of Minor Permit actions under the Coastal Resource Management 
Office's jurisdiction.
    (79) Comment: One commenter stated that if the critical habitat 
designation forces the Air Force to relocate its mission, the impact to 
Guam's economy would be huge.
    Our Response: Estimated costs to relocate Air Force mission 
requirements were provided by the Air Force in a letter during the DEA 
public comment period (Defoliart, in litt., 2003). These costs are 
estimated to be $2.6 billion and exclude the additional costs for 
``bedding down'' new missions at the receiving installation. As 
demonstrated by the information provided by the commenter, relocation 
of mission requirements would be costly, would impact the mission of 
the Air Force and national security, and would impact Guam's economy. 
However, based on the information received to date, there is no reason 
to believe that proposed critical habitat would cause the Air Force to 
relocate or cause its mission to be impeded. Section 6.3.1.3 of the DEA 
identifies potential impacts of critical habitat designation (as 
proposed) on Air Force activities, however, Air Force lands have been 
excluded from this final critical habitat designation (see ``Analysis 
of Air Force Lands Under Section 4(a)(3)'' for more details).
    (80) Comment: One commenter observed that the economic analysis 
does not consider or quantify the benefits of critical habitat and that 
the technology and expertise for quantifying these benefits and 
conducting this analysis exist.
    Our Response: As mentioned in section 6.5.2 of the DEA, the 
development of quantitative estimates associated with the benefits of 
critical habitat is impeded by the lack of available studies and 
information relating to the size and value of beneficial changes that 
are likely to occur as a result of listing a species or designating 
critical habitat. However, several categories of benefits were 
identified and discussed in the DEA, including use value, existence 
value, recreation benefits, overall ecosystem health, ecosystem 
preservation values, and other benefits.
    The commenter suggested that a 1999 analysis by University of 
Hawaii economists on the total value of environmental service provided 
by Oahu's Koolau Mountains be used as a model for estimating the value 
of the environmental benefits provided by critical habitat (Kaiser et 
al. 1999). This document was, in fact, used in the DEA as a resource 
for concepts and for identifying original research on certain subjects, 
but it has limited applicability for valuing the benefits of the 
critical habitat designation for several reasons. First, the University 
of Hawaii study had a different purpose, which was to estimate the 
total value of

[[Page 62973]]

environmental benefits provided by the entire Koolau Mountains on the 
island of Oahu. Many of the assumptions and much of the analysis in the 
University of Hawaii study are not transferable to the economic 
analysis for the critical habitat on Guam and Rota. For example, the 
Koolau Mountains were evaluated as a contiguous area, whereas the 
intended critical habitat designation is composed of several separate 
areas on two islands. The value of water recharge in the University of 
Hawaii study reflected projected water supply and demand conditions on 
Oahu, an island which is almost three times the size of Guam and 18 
times the size of Rota, with a population almost six times that of the 
Guam and 47 times that of Rota. Also, the University of Hawaii benefit 
analysis of reducing soil runoff is unique to three valleys that drain 
through partially channelized streams in urban areas into the man-made 
Ala Wai Canal. Because this canal was designed with inadequate flushing 
from stream or ocean currents, it functions as an unintended settling 
basin and must be dredged periodically. Similar conditions are not 
present on either Guam or Rota.
    (81) Comment: One commenter stated a belief that it is 
inappropriate to include existence and recreational values in the 
calculation of the economic impacts of the critical habitat designation 
on Rota because these values are imported from the U.S. mainland and 
have no relevance on Rota where the Mariana crow is considered to be a 
pest and has ``no commercial or cultural significance.''
    Our Response: As stated in section 6.5.2 of the DEA, existence 
values for endangered species are often calculated with willingness-to-
pay studies. These studies estimate the public's willingness to pay to 
preserve a species or enhance a species' population above and beyond 
any expected direct use. As such, people who do not live on Guam or 
Rota and who have never seen the Mariana fruit bat, Guam Micronesian 
kingfisher, and Mariana crow may still value the existence of these 
species. The DEA identified several existing willingness-to-pay studies 
that are closely applicable to the values associated with protecting 
the Mariana fruit bat, Guam Micronesian kingfisher, and Mariana crow. 
However, these study cases are not sufficiently comparable to the 
policy cases to consider benefits transfer. Therefore, neither the DEA 
nor the DEA addendum provide quantitative estimates of the existence 
values of the species.
    Recreation benefits are mentioned in the DEA because protecting 
critical habitat may result in preservation of habitat suitable for 
other recreational uses, such as hiking, camping, and bird-watching. 
Although some people may consider the Mariana crow to be a pest, there 
may be recreational benefits associated with the protection of the 
habitat for the Mariana crow. However, as stated in the DEA, because 
data on the resultant increase in number or quality of trips are 
unavailable, such estimated recreational benefits cannot be quantified.
    (82) Comment: One commenter stated that the cost analysis in the 
DEA of the designation on military lands is based on the assumption 
that if critical habitat is designated, the Department of Defense would 
pull out of the cooperative agreement that created the overlay National 
Wildlife Refuge and will cease to conduct conservation projects on 
their lands.
    Our Response: As provided by the terms of the Cooperative 
Agreement, the Navy and Air Force have retained the option of 
unilaterally withdrawing any or all of their lands from the Guam 
National Wildlife Refuge in the event that any of these lands on Guam 
are designated critical habitat. The possibility of the Navy pulling 
out of the cooperative agreement was presented under the indirect 
effects section of the DEA based on input we received from Navy 
representatives at that time. The Air Force did not identify any 
potential indirect costs that would result from critical habitat 
designation, or state any intention to withdraw from the overlay refuge 
if critical habitat were designated on their lands. The indirect 
effects of the Navy's potential withdrawal from the refuge were 
discussed, but not quantified, as stated in section 6.3.1.1 of the 
report. Therefore, the cost analysis of designation on Navy and Air 
Force lands was based on quantifiable impacts on specific military 
activities, not, as the commenter suggests, on the broad assumption 
that the military would pull out of the refuge overlay agreement and 
cease to conduct conservation projects. Furthermore, it is not clear 
how or whether the potential withdrawal of the military from the 
overlay refuge would affect the economic impact of critical habitat 
designation. Finally, Air Force and Navy lands were excluded from 
critical habitat designation pursuant to sections 4(a)(3) and/or 
4(b)(2) of the Act (see the ``Exclusions from Critical Habitat'' 
section).
    (83) Comment: One commenter stated that the cost analysis of the 
designation on military lands is based on unsubstantiated claims that 
critical habitat will impair military training and readiness. A recent 
General Accounting Office (GAO) report has found that this is not 
likely the case.
    Our Response: The referenced GAO report (GAO-02-614), which 
surveyed military bases within the continental United States, states 
that readiness data are insufficient to characterize the extent to 
which encroachment (including endangered species habitat on military 
installations) has affected training readiness. However, this report 
and an April 2002 GAO report, ``Military Training: Limitations Exist 
Overseas but Are Not Reflected in Readiness Reporting'' (GAO-02-525), 
both acknowledge that although readiness data do not comprehensively 
document the extent of training range capabilities or costs associated 
with encroachment, military officials report that they have lost 
training range capabilities because of encroachment. As stated in GAO-
02-525, ``For the most part, military officials * * * and office of the 
secretary of defense officials told us that the unit readiness 
reporting is subjective and is not a vehicle to report training 
shortfalls and the associated limitations or restrictions.''
    In the absence of sufficient quantitative data to support or refute 
the military officials' claims that critical habitat would impair 
training and readiness, the DEA relied upon military base 
representatives for input. During the public review period, additional 
military input supported the importance of the bases for national 
security and described the cost implications of forcing missions to 
relocate. The Air Force's Headquarters, Pacific Air Force, provided 
specific examples of the strategic significance of Guam's proximity to 
areas of potential conflict, e.g., dramatic decreases in time and 
distance required to fly to Seoul and Taiwan from Guam (compared to 
Minot Air Force Base in North Dakota), and concluded that Andersen Air 
Force Base is ``crucial'' to the Air Force's implementation of the new 
defense strategy. The Navy's Deputy Chief of Naval Operations (Fleet 
Readiness and Logistics) stated that the Navy is ``extremely concerned 
that a critical habitat designation may curtail or prevent continued 
use of those areas for military purposes, void taxpayer investments in 
infrastructure to support military activities at these locations, and 
require costly investment elsewhere to accomplish training 
requirements.'' Based on a review of the GAO-02-614 and information 
obtained from military representatives, the information regarding 
military training and readiness in the DEA remains appropriate.

[[Page 62974]]

    (84) Comment: One commenter claimed that the need for development 
of Rota's infrastructure, and the potential for critical habitat to 
impede that development, has been overstated. The population of the 
island is small. Other than a golf course and retirement housing, 
little land is needed for infrastructure improvements. Because of the 
need for local permits and Federal permits, infrastructure development 
projects take time to implement, with or without a critical habitat 
designation. Furthermore, critical habitat is sufficiently flexible to 
allow development to take place.
    Our Response: A comprehensive and systematic approach was used to 
identify development activities likely to occur over the 10-year 
assessment period. The data collection methods are presented in Chapter 
5 of the DEA. In addition, further analysis of potential private 
development activities within critical habitat was conducted to 
determine private land development activities that may have a Federal 
nexus because of a variety of Federal funding sources. The results of 
this analysis are provided in section 3 of the DEA addendum. Planned 
development projects that could be affected by proposed critical 
habitat on Rota within the 10-year assessment period, as identified in 
the DEA and DEA addendum, include: improvements at the Rota 
International Airport, roadway improvements to Route 100 on Rota, 
roadway improvements to Routes 5 and 12 on Guam, development of the 
Marianas Agupa Golf Course, development of a solid waste disposal 
landfill, development of an affordable housing project on CLTC lands, 
two new construction projects using VA home loans, and two new 
construction projects using U.S. Department of Agriculture Rural 
Development loans. We agree that development may still take place on 
both public and private lands within critical habitat, with the 
potential associated section 7 costs identified in the DEA and DEA 
addendum.
    (85) Comment: One commenter stated that critical habitat will 
result in the loss of funds and other resources that presently are used 
for conservation because these resources will be needed to complete 
section 7 consultations triggered by actions proposed within critical 
habitat.
    Our Response: The cooperative agreements between the Service and 
the military require that the military conduct consultation under 
Section 7 of the Act in areas identified as essential to the Mariana 
fruit bat, Mariana crow, and Guam Micronesian kingfisher, even if these 
species are extirpated from the affected area (but are not extinct). 
Therefore, the costs associated with consultation on critical habitat 
would be difficult to separate from those already borne by the military 
pursuant to the terms of their cooperative agreement with the Service.

Summary of Changes From the Proposed Rule

    Based partly on a review of public comments received on the 
proposed determinations of critical habitat and partly on additional 
biological examination of several areas, we have reevaluated our 
proposed designations. We made revisions to the unit boundaries based 
on information that indicated that the primary constituent elements 
were not present in certain portions of the proposed units, that 
certain changes in land use had occurred on lands within the proposed 
critical habitat that would preclude those areas from supporting the 
primary constituent elements, or that the areas were not essential to 
the conservation of the species in question. We also revised the unit 
boundaries based on mapping errors that were made in the proposed rule. 
In addition, Andersen Air Force Base lands were excluded under Section 
318 of the fiscal year 2004 National Defense Authorization Act. Navy 
lands, Government of Guam lands, and private lands on Guam were 
excluded under section 4(b)(2) of the Act, as amended by Section 318.
    A brief summary of the modifications made to each unit for each 
species is given below.

Mariana Fruit Bat

Unit A: Northern Guam
    A total of 14,041 ac (5,681 ha) was removed or excluded from 
critical habitat designation in this unit. On COMNAVMARIANAS 
Communications Annex, we removed 169 ac (68 ha) from along the boundary 
of this unit that are mowed areas and do not contain the primary 
constituent elements required by the Mariana fruit bat. We also removed 
95 ac (38 ha) along the eastern coast of Guam because these areas were 
cleared for housing and do not contain the primary constituent elements 
required by the Mariana fruit bat. Along the northern coast, we removed 
100 ac (40 ha) of beach belonging to Andersen Air Force Base, because 
this area does not contain the primary constituent elements required by 
the Mariana fruit bat. Along the northern and western boundary of the 
unit, we removed 237 ac (96 ha) of private land that contain some or 
all of the primary constituent elements, but we believe these areas are 
not essential to the conservation of the Mariana fruit bat. We also 
modified the boundary around the Guam National Wildlife Refuge to 
include 83 ac (33 ha) of Service-owned land that had not been included 
in the proposed rule due to a mapping error.
    Finally, Air Force, Navy, and Government of Guam lands were 
excluded from critical habitat designation in this unit under sections 
4(a)(3) and/or 4(b)(2) of the Act, as amended, for the reasons 
described earlier in the sections entitled ``Exclusions from Critical 
Habitat.'' Exclusion of Air Force lands resulted in the subtraction of 
10,838 ac (4,386 ha) from designated critical habitat in northern Guam. 
Exclusion of Navy lands resulted in a subtraction of 962 ac (389 ha) 
from designated critical habitat in northern Guam. Exclusion of 
Government of Guam lands resulted in a subtraction of 1,640 ac (664 ha) 
from designated critical habitat in northern Guam.
    These modifications resulted in the reduction of critical habitat 
in the unit from 14,338 ac (5,803 ha) to approximately 376 ac (152 ha). 
This unit is the only designated unit for the Mariana fruit bat on Guam 
and has been renamed the ``Mariana Fruit Bat Unit'' (see ``Critical 
Habitat Designation'' and ``Unit B: Southern Guam'' below for 
additional information).
Unit B: Southern Guam
    A total of 10,464 ac (4,234 ha) was removed or excluded from 
critical habitat designation in this unit. On COMNAVMARIANAS Ordnance 
Annex, we removed 139 ac (57 ha) along the northern boundary of the 
unit because it contains buildings and mowed areas and does not contain 
the primary constituent elements for the Mariana fruit bat. We also 
removed 18 ac (7 ha) of private land from the eastern boundary of the 
unit that does contain the primary constituent elements but is not 
essential to the conservation of the Mariana fruit bat.
    In addition, all Navy, Government of Guam, and private lands were 
excluded from critical habitat designation for the reasons described 
earlier in the sections entitled ``Exclusions from Critical Habitat.'' 
Exclusion of Navy lands resulted in the subtraction of 7,015 ac (2,839 
ha) from designated critical habitat in southern Guam. Exclusion of 
Government of Guam lands resulted in the subtraction of 1,349 ac (546 
ha) from designated critical habitat in southern Guam. Exclusion of 
private lands resulted in the subtraction of 1,941 ac

[[Page 62975]]

(785 ha) from designated critical habitat in southern Guam.
    These modifications resulted in the removal of this unit from 
critical habitat. Critical habitat for the Mariana fruit bat on Guam is 
now in one unit in northern Guam called the ``Mariana Fruit Bat Unit'' 
(see ``Critical Habitat Designation'' for additional information).

Mariana Crow

Unit A: Northern Guam
    A total of 13,772 ac (5,587 ha) was removed or excluded from 
critical habitat designation in this unit. On COMNAVMARIANAS 
Communications Annex, we removed 169 ac (68 ha) from along the boundary 
of this unit that are mowed areas and do not contain the primary 
constituent elements required by the Mariana crow. On Andersen Air 
Force Base we removed 100 ac (40 ha) of beach along the northern coast 
because this area does not contain the primary constituent elements 
required by the Mariana crow. Along the western and northern boundaries 
of the unit, we removed 99 ac (40 ha) of private land that do contain 
some or all of the primary constituent elements, but are not essential 
to the conservation of the Mariana crow. We also modified the boundary 
around the Guam National Wildlife Refuge to include 53 ac (33 ha) that 
had not been included in the proposed rule due to a mapping error.
    Finally, Air Force, Navy, and Government of Guam lands were 
excluded from critical habitat designation in this unit under sections 
4(a)(3) and/or 4(b)(2) of the Act, as amended, for the reasons 
described earlier in the section entitled ``Exclusions from Critical 
Habitat.'' Exclusion of Air Force lands resulted in the subtraction of 
10,838 ac (4,386 ha) from designated critical habitat in northern Guam. 
Exclusion of Navy lands resulted in a subtraction of 926 ac (389 ha) 
from designated critical habitat in northern Guam. Exclusion of 
Government of Guam lands resulted in a subtraction of 1,419 ac (575 ha) 
from designated critical habitat in northern Guam.
    These modifications resulted in the reduction of critical habitat 
in the unit from 12,540 ac (5,075 ha) to approximately 376 ac (152 ha). 
This unit is now the only designated critical habitat for the Mariana 
crow on Guam (see ``Critical Habitat Designation'' and ``Unit B: 
Southern Guam'' below for additional information).
Unit B: Southern Guam
    A total of 10,464 ac (4,234 ha) was removed or excluded from 
critical habitat designation in this unit. On COMNAVMARIANAS Ordnance 
Annex, we removed 139 ac (57 ha) along the northern boundary of the 
unit because it contains buildings and mowed areas and does not contain 
the primary constituent elements for the Mariana crow. We also removed 
18 ac (7 ha) of private land from the eastern boundary of the unit that 
does contain the primary constituent elements, but we believe this area 
is not essential to the conservation of the Mariana crow.
    Finally, all Navy, Government of Guam, and private lands were 
excluded from critical habitat designation for the reasons described 
earlier in the sections entitled ``Exclusions from Critical Habitat.'' 
Exclusion of Navy lands resulted in the subtraction of 7,015 ac (2,839 
ha) from designated critical habitat in southern Guam. Exclusion of 
Government of Guam lands resulted in the subtraction of 1,349 ac (546 
ha) from designated critical habitat in southern Guam. Exclusion of 
private lands resulted in the subtraction of 1,941 ac (785 ha) from 
designated critical habitat in southern Guam.
    These modifications resulted in the removal of this unit from 
critical habitat designation. Critical habitat for the Mariana crow on 
Guam was only designated in northern Guam in Unit A (see ``Critical 
Habitat Designation'' for additional information).
Unit C: Rota
    A total of 49 ac (20 ha) was removed for biological reasons from 
critical habitat designation in this unit. We removed 42 ac (17 ha) of 
private land from this unit because we found these areas are cleared 
and do not contain the primary constituent elements required by the 
Mariana crow. We also removed 7 ac (3 ha) of private land from the 
boundary of the unit because this area is not essential to the 
conservation of the Mariana crow. These modifications resulted in the 
reduction of critical habitat in the unit from 6,084 ac (2,462 ha) to 
6,035 ac (2,442 ha). This unit is now divided into two separate 
subunits and has been renamed ``Unit B'' (see ``Critical Habitat 
Designation'' for additional information).

Guam Micronesian Kingfisher

Unit A: Northern Guam
    A total of 14,041 ac (5,681 ha) was removed or excluded from 
critical habitat designation in this unit. On COMNAVMARIANAS 
Communications Annex, we removed 169 ac (68 ha) from along the boundary 
of this unit that are mowed areas and do not contain the primary 
constituent elements required by the Guam Micronesian kingfisher. We 
also removed 95 ac (38 ha) of private land along the eastern coast of 
Guam because these are cleared for housing and do not contain the 
primary constituent elements required by the Guam Micronesian 
kingfisher. Along the northern coast, we removed 100 ac (40 ha) of 
beach belonging to Andersen Air Force Base because this area does not 
contain the primary constituent elements required by the Guam 
Micronesian kingfisher. Along the northern and western boundary of the 
unit, we removed 237 ac (96 ha) of private land that do contain some or 
all of the primary constituent elements, but are not essential to the 
conservation of the Guam Micronesian kingfisher. We also modified the 
boundary around the Guam National Wildlife Refuge to include 83 ac (33 
ha) of Service-owned lands that had not been included in the proposed 
rule due to a mapping error.
    Finally, all Air Force, Navy, and Government of Guam lands were 
excluded from critical habitat designation in this unit under sections 
4(a)(3) and/or 4(b)(2) of the Act, as amended, for the reasons 
described earlier in the sections entitled ``Exclusions from Critical 
Habitat.'' Exclusion of Air Force lands resulted in the subtraction of 
10,838 ac (4,386 ha) from designated critical habitat in northern Guam. 
Exclusion of Navy lands resulted in a subtraction of 962 ac (389 ha) 
from designated critical habitat in northern Guam. Exclusion of 
Government of Guam lands resulted in a subtraction of 1,640 ac (664 ha) 
from critical habitat in northern Guam.
    These modifications resulted in the reduction of critical habitat 
in the unit from 14,338 ac (5,803 ha) to approximately 376 ac (152 ha). 
This unit is now called the ``Guam Micronesian Kingfisher Unit``'' and 
is the only designated critical habitat for the species on Guam (see 
``Critical Habitat Designation'' and ``Unit B: Southern Guam'' below 
for additional information).
Unit B: Southern Guam
    A total of 10,464 ac (4,234 ha) was removed or excluded from 
critical habitat designation in this unit. On COMNAVMARIANAS Ordnance 
Annex we removed 139 ac (57 ha) along the northern boundary of the unit 
because it contains buildings and mowed areas and does not contain the 
primary constituent elements, and is not essential to the conservation 
of the Guam Micronesian kingfisher. We also

[[Page 62976]]

removed 18 ac (7 ha) of private land from the eastern boundary of the 
unit that does contain the primary constituent elements, but is not 
essential to the conservation of the Guam Micronesian kingfisher.
    Finally, all Navy, Government of Guam, and private lands were 
excluded from critical habitat designation for the reasons described 
earlier in the sections entitled ``Exclusions from Critical Habitat.'' 
Exclusion of Navy lands resulted in the subtraction of 7,015 ac (2,839 
ha) from designated critical habitat in southern Guam. Exclusion of 
Government of Guam lands resulted in the subtraction of 1,349 ac (546 
ha) from designated critical habitat in southern Guam. Exclusion of 
private lands resulted in the subtraction of 1,941 ac (785 ha) from 
designated critical habitat in southern Guam.
    These modifications resulted in the removal of this unit from 
critical habitat designation. Designated critical habitat for the Guam 
Micronesian kingfisher is found in northern Guam in the ``Guam 
Micronesian Kingfisher Unit'' (see ``Critical Habitat Designation'' for 
additional information).

Required Determinations

Regulatory Planning and Review

    In accordance with Executive Order 12866, this document is found to 
be a significant regulatory action. Because of the Court Ordered 
deadline, formal Office of Management and Budget (OMB) review was not 
undertaken. We prepared an economic analysis of this action. The draft 
economic analysis was made available for public comment and we 
considered those comments during the preparation of this rule. The 
economic analysis indicates that this rule will not have an annual 
economic effect of $100 million or more; based on our economic 
analysis, the annualized economic effects of this designation are 
estimated to be $174,624. We have excluded much of these lands analyzed 
in the draft economic analysis and addendum so the direct economic 
impacts of the final designation is likely to be substantially lower 
than this estimate. With approximately 90 percent reduction in acreage 
and only refuge and Rota lands remaining, the cost may be closer to 
$463,300 based on 10-year estimates.

Regulatory Flexibility Act (5 U.S.C. 601 et seq.)

    The following discussion of the potential economic impacts of this 
final rule reflects only the views of the Service. This discussion is 
based upon the information regarding potential economic impact that is 
available to the Service at this time. This analysis is for the 
purposes of compliance with the Regulatory Flexibility Act and does not 
reflect the position of the Service on the type of economic analysis 
required by the judicial decision in New Mexico Cattle Growers Assn. v. 
U.S. Fish and Wildlife Service, 248 F.3d 1277 (10th Cir. 2001).
    Under the Regulatory Flexibility Act (5 U.S.C. 601 et seq., as 
amended by the Small Business Regulatory Enforcement Fairness Act of 
1996, whenever an agency is required to publish a notice of rulemaking 
for any proposed or final rule, it must prepare and make available for 
public comment a regulatory flexibility analysis that describes the 
effects of the rule on small entities (i.e., small businesses, small 
organizations, and small government jurisdictions). However, no 
regulatory flexibility analysis is required if the head of the agency 
certifies the rule will not have a significant economic impact on a 
substantial number of small entities. The Small Business Regulatory 
Enforcement Fairness Act amended the Regulatory Flexibility Act to 
require Federal agencies to provide a statement of the factual basis 
for certifying that the rule will not have a significant economic 
effect on a substantial number of small entities. The Small Business 
Regulatory Enforcement Fairness Act also amended the Regulatory 
Flexibility Act to require a certification statement. Based on current 
information, the Service certifies that this final rule will not have a 
significant effect on a substantial number of small entities.
    The Small Business Regulatory Enforcement Fairness Act does not 
explicitly define either ``substantial number'' or ``significant 
economic impact.'' Consequently, to assess whether a ``substantial 
number'' of small entities is affected by this designation, this 
analysis considers the relative number of small entities likely to 
sustain impacts in the area. Similarly, this analysis considers the 
relative cost of compliance on the revenues/profit margins of small 
entities in determining whether or not entities incur a ``significant 
economic impact.'' Only small entities that are expected to be directly 
affected by the designation are considered in this portion of the 
analysis. This approach is consistent with several judicial opinions 
related to the scope of the Regulatory Flexibility Act (Mid-Tex 
Electric Co-Op, Inc. v. FERC and American Trucking Associations, Inc. 
v. EPA).
    According to the Small Business Administration, small entities 
include small organizations, such as independent nonprofit 
organizations, and small governmental jurisdictions, including school 
boards and city and town governments that serve fewer than 50,000 
residents, as well as small businesses (13 CFR 121.201). Small 
businesses include manufacturing and mining concerns with fewer than 
500 employees, wholesale trade entities with fewer than 100 employees, 
retail and service businesses with less than $5 million in annual 
sales, general and heavy construction businesses with less than $27.5 
million in annual business, special trade contractors doing less than 
$11.5 million in annual business, and agricultural businesses with 
annual sales less than $750,000. To determine if potential economic 
impacts to these small entities are significant, we consider the types 
of activities that might trigger regulatory impacts under this rule as 
well as the types of project modifications that may result. In general, 
the term ``significant economic impact'' is meant to apply to a typical 
small business firm's business operations.
    To determine if the rule would affect a substantial number of small 
entities, we consider the number of small entities affected within 
particular types of economic activities (e.g., housing development, 
grazing, oil and gas production, timber harvesting, etc.). In 
estimating the numbers of small entities potentially affected, we also 
consider whether their activities have any Federal involvement; some 
kinds of activities are unlikely to have any Federal involvement and so 
will not be affected by critical habitat designation.
    Designation of critical habitat only affects activities carried 
out, authorized, or funded by Federal agencies; non-Federal activities 
are not affected by the designation. In areas where the species are 
present, Federal agencies are already required to consult with us under 
section 7 of the Act on activities that they carry out, authorize, or 
fund that may affect Mariana fruit bats, Mariana crows, and/or Guam 
Micronesian kingfishers. When these critical habitat designations are 
finalized, Federal agencies must also consult with us if their 
activities may affect designated critical habitat. However, in areas 
where the species are present, we do not believe this will result in 
appreciable additional regulatory burdens on Federal agencies or their 
applicants because consultation would already be required because of 
the presence of the listed species.
    Even if the duty to avoid adverse modification does not trigger 
additional regulatory impacts in areas where the species is present, 
designation of critical

[[Page 62977]]

habitat could result in an additional economic burden on small entities 
due to the requirement to reinitiate formal consultation for ongoing 
Federal activities. We have reviewed 209 informal consultations and 37 
formal consultations conducted on the Mariana fruit bat, Mariana crow, 
and Guam Micronesian kingfisher on Guam since these species were listed 
in 1984. In addition, we reviewed nine informal consultations conducted 
on the island of Rota, CNMI, since 1984. No formal consultations have 
been conducted on Rota since the Mariana crow was listed. Consultations 
on Federal grants to State wildlife programs, which do not affect small 
entities, were not reviewed for this final rule. Seventy-seven of the 
209 informal consultations on Guam and 3 of the 5 informal 
consultations on Rota were conducted in response to requests for 
technical assistance or species lists for different locations on Guam 
and Rota. The majority of these requests were made by Federal agencies, 
some on their behalf by private consultants or contractors. Of the 246 
total consultations on Guam, 57 informal and 20 formal consultations 
involved at least one of the species involved in this final rule. Of 
the nine consultations on Rota, six involved the Mariana crow.
    Of the 20 formal consultations on Guam, two may have involved a 
small entity. Both of these concerned proposals by the Urunao Resort 
Corporation to have contractors conduct topographic survey work on 
private and Federal lands for a potential access road through Navy 
property to private lands. The Mariana fruit bat and Mariana crow were 
reported from the action areas. The biological opinions (Pacific 
Islands Fish and Wildlife Office log numbers 1-2-90-F-027 and 1-2-91-F-
008) concluded that the proposed action would not result in jeopardy to 
either species. The reasonable and prudent measures required in the 
biological opinions to avoid or minimize incidental take of these 
species did not include major modifications to the proposed action and 
therefore did not place a significant economic burden on Urunao Resort 
Corporation. We do not believe this constitutes a substantial number of 
small entities (see earlier discussion on substantial number). Of the 
remaining 18 formal consultations on Guam involving the Mariana fruit 
bat, Mariana crow, and/or Guam Micronesian kingfisher, 10 were 
conducted on behalf of the Air Force and 8 were conducted on behalf of 
the Navy. In all of these consultations, the Service concluded that the 
proposed actions would not result in jeopardy to these three listed 
species.
    Of the 57 informal consultations on Guam, one may have concerned a 
small entity (private individuals, consulting firms, or nonprofit 
organizations). The proposed action in this case, the gathering of a 
large Chamorro family on the Guam National Wildlife Refuge, was 
determined not likely to adversely affect listed species and was 
subject only to minor restrictions under a special use permit for the 
refuge. We do not believe this instance constitutes a substantial 
number of small entities (see earlier discussion on substantial 
number). Four informal consultations were conducted on behalf of 
Government of Guam agencies. One action was determined not likely to 
adversely affect listed species, and the other was determined to have 
no effect on listed species. A third was determined not likely to 
adversely modify the critical habitat proposed in 1991. The fourth 
consultation on behalf of the Government of Guam concerned technical 
assistance from the Service and resulted in no regulatory action by the 
Service or economic burden on the Government of Guam. We conclude, 
however, that the Government of Guam is not a small entity under the 
Small Business Regulatory Enforcement Fairness Act.
    Of the six informal consultations on Rota that concerned the 
Mariana crow, none concerned a small entity, and all consultations were 
conducted on behalf of the Government of the CNMI. Four of these 
consultations were requests for technical assistance or species lists 
and resulted in no regulatory action by the Service or economic burden 
on the Government of the CNMI. The remaining two actions were 
determined not likely to adversely affect the Mariana crow. We 
concluded, however, that the Government of the CNMI is not a small 
entity under the Small Business Regulatory Enforcement Fairness Act.
    The remaining 52 informal consultations on Guam exclusively 
involved the following Federal agencies: U.S. Air Force (27 
consultations), U.S. Department of the Navy (14 consultations), U.S. 
Department of Agriculture (4 consultations), U.S. Fish and Wildlife 
Service (3 consultations), U.S. Army Corps of Engineers (2 
consultations), U.S. Department of the Army (one consultation), and 
Natural Resources Conservation Service (formally the Soil Conservation 
Service) (one consultation). None of these agencies is a small entity 
under the Small Business Regulatory Enforcement Fairness Act. Of these 
consultations, seven included critical habitat proposed in 1991, and 
these proposed actions were determined not likely to adversely modify 
proposed critical habitat. Of the remaining 45 consultations, 38 
concluded with our concurrence that the proposed action either would 
have no effect on, or was not likely to adversely affect, listed 
species; five consultations were responses to requests for either 
species lists or technical assistance and did not conclude with a 
regulatory determination; one concluded with a request by the Service 
for more information; and one concluded with a determination that the 
proposed action, Navy training maneuvers, was likely to adversely 
affect the Mariana crow.
    In areas where the species clearly are not present, designation of 
critical habitat could trigger additional review of Federal activities 
under section 7 of the Act that otherwise would not be required. The 
majority of activities in the critical habitat areas for the Mariana 
fruit bat, Mariana crow, and Guam Micronesian kingfisher that have 
Federal involvement likely will concern the U.S. Navy or Air Force. As 
mentioned above, however, only 77 of 246 informal consultations on Guam 
completed under section 7 of the Act involved any of the species for 
which critical habitat is being designated. As a result, we cannot 
easily identify future consultations that may result from the listed 
status of the species or the increment of additional consultations that 
may be required by this critical habitat designation. Furthermore, a 
large proportion of the critical habitat designation on Guam is 
currently unoccupied by these species. Therefore, for the purposes of 
this review and certification under the Regulatory Flexibility Act, we 
are making the conservative assumption that any future consultations in 
the area designated as critical habitat on Guam likely will result from 
the critical habitat designations.
    Of the total land area designated as critical habitat on Guam for 
the Mariana fruit bat, Mariana crow, and Guam Micronesian kingfisher, 
approximately 15 percent is private land, 21 percent is Government of 
Guam land, and 64 percent is Federal land. Of the total land area 
designated as critical habitat for the Mariana crow on Rota, 
approximately 8 percent is private land and 92 percent is CNMI 
Government land. Much of the land within the designated critical 
habitat units has limited potential for development because of the 
remote locations, lack of access, and rugged terrain of these lands. On 
non-Federal lands, activities that lack Federal involvement would not 
be affected by

[[Page 62978]]

the critical habitat designations. Activities of an economic nature 
that are likely to occur on non-Federal lands in the area encompassed 
by these designations consist of improvements to and construction of 
roads, communications and tracking facilities, and other 
infrastructure; residential and tourist-related development; ranching 
and farming; and recreational use, such as camping, picnicking, game 
hunting, and fishing. With the exception of communications and tracking 
facilities improvements by the Federal Aviation Administration or the 
Federal Communications Commission, road building or improvement by the 
Federal Highway Administration, and water or sewer system development 
by the Corps of Engineers these activities are unlikely to have Federal 
involvement. On lands that are or may be in agricultural production, 
the types of activities that might trigger a consultation include 
irrigation ditch system projects that may require section 404 
authorizations from the Corps of Engineers, and watershed management 
and restoration projects sponsored by the Natural Resources 
Conservation Service. However, Natural Resources Conservation Service 
restoration projects typically are voluntary, and the irrigation ditch 
system projects within lands that are in agricultural production are 
rare and may affect only a small percentage of the small entities 
within these critical habitat designations. Therefore, analysis of 
currently available information indicates that the final rule would not 
affect a substantial number of small entities. We are not aware of any 
commercial activities on the Federal lands included in these critical 
habitat designations.
    In general, two different mechanisms in section 7 consultations 
could lead to additional regulatory requirements. First, if we 
conclude, in a biological opinion, that a proposed action is likely to 
jeopardize the continued existence of a species or adversely modify its 
critical habitat, we can offer ``reasonable and prudent alternatives.'' 
Reasonable and prudent alternatives are alternative actions that can be 
implemented in a manner consistent with the scope of the Federal 
agency's legal authority and jurisdiction, that are economically and 
technologically feasible, and that would avoid jeopardizing the 
continued existence of listed species or would result in adverse 
modification of critical habitat. A Federal agency and an applicant may 
elect to implement a reasonable and prudent alternative associated with 
a biological opinion that has found jeopardy or adverse modification of 
critical habitat. An agency or applicant could alternatively choose to 
seek an exemption from the requirements of the Act or proceed without 
implementing the reasonable and prudent alternative. However, unless an 
exemption were obtained, the Federal agency or applicant would be at 
risk of violating section 7(a)(2) of the Act if it chose to proceed 
without implementing the reasonable and prudent alternative(s).
    Secondly, if we find that a proposed action is not likely to 
jeopardize the continued existence of a listed animal species, we may 
identify reasonable and prudent measures designed to minimize the 
amount or extent of incidental take anticipated to result from the 
project and require the Federal agency or applicant to implement such 
measures through nondiscretionary terms and conditions. We may also 
identify discretionary conservation recommendations designed to 
minimize or avoid the adverse effects of a proposed action on listed 
species or critical habitat, help implement recovery plans, or gather 
information that could contribute to the long-term conservation of the 
species.
    Based on our experience with section 7 consultations for all listed 
species, virtually all projects--including those that, in their initial 
proposed form, would result in jeopardy or adverse modification 
determinations in section 7 consultations--can be implemented 
successfully with, at most, the adoption of reasonable and prudent 
alternatives. Furthermore, these measures must be economically 
feasible, consistent with the intended purpose of the action, and 
within the scope of authority of the Federal agency involved in the 
consultation (see 50 CFR 404.2, definition of reasonable and prudent 
alternative). Based on our consultation history, we can describe the 
general kinds of actions that may be identified in future reasonable 
and prudent alternatives. These are based on our understanding of the 
needs of the species and the threats they face, especially as described 
in the final listing rule and in this critical habitat designation, as 
well as our experience with the listed species in Guam and Rota. The 
kinds of actions that may be included in future reasonable and prudent 
alternatives include, but are not limited to, management of competing 
nonnative species and predators, restoration of degraded habitat, 
construction of protective fencing, and regular monitoring. Therefore, 
such measures are not likely to result in a significant economic impact 
to a substantial number of small entities.
    As required under section 4(b)(2) of the Act, we conducted an 
analysis of the potential economic and other impacts of this critical 
habitat designation, and we made this analysis available for public 
review and comment before finalizing these designations.
    In summary, we have considered whether this final rule would result 
in a significant economic effect on a substantial number of small 
entities. Currently available information indicates it would not affect 
a substantial number of small entities. None of the lands designated as 
critical habitat on Guam are on Government of Guam lands. In addition, 
approximately 92 percent of the lands designated as critical habitat on 
Rota are on Government of the CNMI lands. The Territory of Guam and 
CNMI are not small entities under the Small Business Regulatory 
Enforcement Fairness Act. None of the lands designated as critical 
habitat on Guam and 8 percent of lands proposed as critical habitat on 
Rota are on private lands. As discussed earlier, many of the actions 
likely to occur on the private land parcels included in this proposal 
are not likely to require any Federal authorization. In the remaining 
areas, section 7 application, the only trigger for regulatory impact 
under this rule, largely would be limited to a subset of the area 
designated. The most likely future section 7 consultations resulting 
from this rule would be for informal consultations on actions proposed 
by the military, federally funded land and water conservation projects, 
species-specific surveys and research projects, and watershed 
management and restoration projects sponsored by the Natural Resources 
Conservation Service. These consultations likely would occur on only a 
subset of the total number of parcels and, therefore, are not likely to 
affect a substantial number of small entities. This rule would result 
in project modifications only when proposed Federal activities would 
destroy or adversely modify critical habitat. While this may occur, it 
is not expected frequently enough to affect a substantial number of 
small entities. Even if it did occur, we would not expect it to result 
in a significant economic impact, as the measures included in 
reasonable and prudent alternatives must be economically feasible and 
consistent with the proposed action. Thus, currently available 
information indicates that the designation of critical habitat for the 
Mariana fruit bat, Mariana crow, and Guam Micronesian kingfisher will 
not have a significant economic impact on

[[Page 62979]]

a substantial number of small entities, and an initial regulatory 
flexibility analysis is not required.

Small Business Regulatory Enforcement Fairness Act (5 U.S.C. 804(2))

    Under the Small Business Regulatory Enforcement Fairness Act (5 
U.S.C. 801 et seq.), this rule is not a major rule. Our detailed 
assessment of the economic effects of this designation are described in 
the draft economic analysis and the final addendum to the economic 
analysis. Based on the effects identified in these documents, we 
believe that this rule will not have an effect on the economy of $100 
million or more, will not cause a major increase in costs or prices for 
consumers, and will not have significant adverse effects on 
competition, employment, investment, productivity, innovation, or the 
ability of U.S.-based enterprises to compete with foreign-based 
enterprises. Please refer to the final addendum to the economic 
analysis for a discussion of the effects of this determination.

Executive Order 13211

    On May 18, 2001, the President issued Executive Order 13211, on 
regulations that significantly affect energy supply, distribution, and 
use. Executive Order 13211 requires agencies to prepare Statements of 
Energy Effects when undertaking certain actions. Though current 
information indicates this final rule would be a significant regulatory 
action under Executive Order 12866, it is not expected to significantly 
affect energy supplies, distribution, or use. Therefore, this action is 
not a significant energy action, and no Statement of Energy Effects is 
required.

Unfunded Mandates Reform Act (2 U.S.C. 1501 et seq.)

    In accordance with the Unfunded Mandates Reform Act (2 U.S.C. 1501 
August 25, 2000 et seq.):
    (a) This rule will not ``significantly or uniquely'' affect small 
governments. A Small Government Agency Plan does not appear to be 
required. Small governments would be affected only to the extent that 
any programs having Federal funds, permits, or other authorized 
activities would have to ensure that their actions will not adversely 
affect the critical habitat. However, as discussed above, these actions 
are currently subject to similar restrictions through the listing 
protections of the species, and further restrictions are not 
anticipated to result from critical habitat designation of occupied 
areas. In our economic analysis, we evaluated the impact of designating 
unoccupied areas where section 7 consultations would not have occurred 
but for the critical habitat designation.
    (b) This rule will not produce on State, local, or Tribal 
governments or the private sector a Federal mandate of $100 million or 
greater in any year, so it does not meet the criteria for a 
``significant regulatory action'' under the Unfunded Mandates Reform 
Act.

Takings

    In accordance with Executive Order 12630 (``Government Actions and 
Interference with Constitutionally Protected Private Property 
Rights''), we have preliminarily analyzed the potential takings 
implications of the designating critical habitat in a preliminary 
takings implication assessment, which indicates that this rule would 
not pose significant takings implications.

Federalism

    In accordance with Executive Order 13132, the rule does not have 
significant Federalism effects. A Federalism assessment is not 
required. As discussed above, the designation of critical habitat in 
areas currently occupied by the Mariana fruit bat and Mariana crow and 
in areas unoccupied by these species and the Guam Micronesian 
kingfisher would have little incremental impact on the Government of 
Guam or the CNMI and their activities. The designations may have some 
benefit to the Government of Guam and the CNMI in that the areas 
essential to the conservation of these species are more clearly 
defined, and the primary constituent elements of the habitat necessary 
to the survival of these species are identified. While this definition 
and identification does not alter where and what Federally sponsored 
activities may occur, it may assist the Government of Guam and the CNMI 
in long-range planning rather than waiting for case-by-case section 7 
consultation to occur.

Civil Justice Reform

    In accordance with Executive Order 12988, the Department of the 
Interior's Office of the Solicitor has determined that this rule does 
not unduly burden the judicial system and does meet the requirements of 
sections 3(a) and 3(b)(2) of the Order. We are designating critical 
habitat in accordance with the provisions of the Act. The rule uses 
standard property descriptions and identifies the primary constituent 
elements within the designated areas to assist the public in 
understanding the habitat needs of the Mariana fruit bat, Guam 
Micronesian kingfisher, and Mariana crow.

Paperwork Reduction Act of 1995 (44 U.S.C. 3501 et seq.)

    This rule does not contain any information collection requirements 
for which Office of Management and Budget approval under the Paperwork 
Reduction Act is required. 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 Office of Management and Budget 
control number.

National Environmental Policy Act

    We have determined that we do not have to prepare an Environmental 
Assessment and/or an Environmental Impact Statement as defined by the 
National Environmental Policy Act of 1969 in connection with 
regulations adopted pursuant to section 4(a) of the Act, as amended. We 
published a notice outlining our reasons for this determination in the 
Federal Register on October 25, 1983 (48 FR 49244).

Government-to-Government Relationship With Tribes

    In accordance with the President's memorandum of April 29, 1994, 
``Government-to-Government Relations With Native American Tribal 
Governments'' (59 FR 22951), Executive Order 13175, and the Department 
of the Interior's manual at 512 DM 2, we readily acknowledge our 
responsibility to communicate meaningfully with federally recognized 
Tribes on a government-to-government basis. The designated critical 
habitat on Guam and Rota for the Mariana fruit bat, Guam Micronesian 
kingfisher, and Mariana crow does not contain any Tribal lands or lands 
that we have identified as impacting Tribal trust resources.

References Cited

    A complete list of all references cited in this final rule is 
available upon request from our Pacific Islands Fish and Wildlife 
Office (see ADDRESSES section).

Authors

    This document was drafted by the Pacific Islands Fish and Wildlife 
Office with assistance from the U.S. Department of the Interior (see 
ADDRESSES section).

List of Subjects in 50 CFR Part 17

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

[[Page 62980]]

Regulation Promulgation

0
Accordingly, part 17, subchapter B of chapter I, title 50 of the Code 
of Federal Regulations is amended as set forth below:

PART 17--[AMENDED]

0
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.


0
2. In Sec.  17.11(h), the entries for ``Bat, Mariana fruit'' under 
``MAMMALS,'' ``Kingfisher, Guam Micronesian'' under ``BIRDS,'' and 
``Crow, Mariana'' under ``BIRDS'' are revised to read as follows:


Sec.  17.11  Endangered and threatened wildlife.

* * * * *
    (h) * * *

--------------------------------------------------------------------------------------------------------------------------------------------------------
                       Species                                                 Vertebrate
------------------------------------------------------                      population where                                   Critical        Special
                                                         Historic range       endangered or        Status     When listed       habitat         rules
           Common name              Scientific name                            threatened
--------------------------------------------------------------------------------------------------------------------------------------------------------
             Mammals
 
                                                                      * * * * * * *
Bat, Mariana fruit (=Mariana      Pteropus mariannus   Western Pacific     Guam..............  E                      156  17.95(a)                   NA
 flying fox).                      mariannus.           Ocean USA (Guam,
                                                        Commonwealth of
                                                        the Northern
                                                        Mariana Islands).
                                                                      * * * * * * *
              Birds
 
                                                                      * * * * * * *
Crow, Mariana...................  Corvus kubaryi.....  Western Pacific     Entire............  E                      156  17.95(b)                   NA
                                                        Ocean USA (Guam,
                                                        Rota).
 
                                                                      * * * * * * *
Kingfisher, Guam Micronesian....  Halcyon cinnamomina  Western Pacific     Entire............  E                      156  17.95(b)                   NA
                                   cinnamomina.         Ocean USA (Guam).
 
                                                                      * * * * * * *
--------------------------------------------------------------------------------------------------------------------------------------------------------


0
3. Amend Sec.  17.95 by adding, in the same alphabetical order as these 
species occur in Sec.  17.11(h):
0
a. In paragraph (a), critical habitat for the Mariana fruit bat 
(Pteropus mariannus mariannus) as set forth below; and
0
b. In paragraph (b), critical habitat for the Mariana crow (Corvus 
kubaryi) and Guam Micronesian kingfisher (Halcyon cinnamomina 
cinnamomina) as set forth below.


Sec.  17.95  Critical habitat--fish and wildlife.

    (a) Mammals.
* * * * *

Mariana Fruit Bat (Pteropus mariannus mariannus)

    (1) The critical habitat unit for the Mariana fruit bat is depicted 
for the Territory of Guam on the maps below.
    (2) Within this area, the primary constituent elements required by 
the Mariana fruit bat for the biological needs of foraging, sheltering, 
roosting, and rearing of young are found in areas supporting limestone, 
secondary, ravine, swamp, agricultural, and coastal forests composed of 
native or introduced plant species. These forest types provide the 
primary constituent elements of:
    (i) Plant species used for foraging, such as Artocarpus sp. 
(breadfruit), Carica papaya (papaya), Cycas circinalis (fadang), Ficus 
spp. (fig), Pandanus tectorius (kafu), Cocos nucifera (coconut palm), 
and Terminalia catappa (talisai); and
    (ii) Remote locations, often within 328 ft (100 m) of clifflines 
that are 260 to 590 ft (80 to 100 m) tall, with limited exposure to 
human disturbance; land that contains mature fig, Mammea odorata 
(chopak), Casuarina equisetifolia (gago), Macaranga thompsonii 
(pengua), Guettarda speciosa (panao), Neisosperma oppositifolia 
(fagot), and other tree species that are used for roosting and 
breeding.
    (3) Critical habitat does not include existing features and 
structures within the boundaries of the mapped units, such as 
buildings, roads, aqueducts, antennas, water tanks, agricultural 
fields, paved areas, lawns, and other urban landscaped areas not 
containing one or more of the primary constituent elements.
    (4) The critical habitat unit is described below. Coordinates are 
in UTM Zone 55 with units in meters using North American Datum of 1983 
(NAD83)/World Geodetic System 1984 (WGS 84).

    (i) Note: Map 1--General Location of the Mariana Fruit Bat Unit 
follows:
BILLING CODE 4310-55-P

[[Page 62981]]

[GRAPHIC] [TIFF OMITTED] TR28OC04.000

    (ii) Guam, Mariana fruit bat (376 ac; 152 ha).
    (A) Unit consists of the following nine boundary points: 267358, 
1509113; 267338, 1509107; 267277, 1509113; 271077, 1508881; 271071, 
1508878; 270766, 1509058; 269030, 1510105; 268659, 1510129; 267697, 
1509376.

    (B) Note: Map 2 showing Mariana Fruit Bat Unit follows:

[[Page 62982]]

[GRAPHIC] [TIFF OMITTED] TR28OC04.001

* * * * *
    (b) Birds.
* * * * *
Mariana Crow (Corvus kubaryi)

    (1) Critical habitat units for the Mariana crow are depicted for 
the Territory of Guam and the island of Rota, Commonwealth of the 
Northern Mariana Islands, on the maps below.
    (2) The primary constituent elements required by the Mariana crow 
for the biological needs of foraging, sheltering, roosting, nesting, 
and rearing of young are found in areas that support limestone, 
secondary, ravine, swamp, agricultural, and coastal forests composed of 
native and introduced plant species. These forest types provide the 
primary constituent elements of:
    (i) Emergent trees and subcanopy trees with dense cover for 
breeding, such as Neisosperma oppositifolia (fagot), Macaranga 
thompsonii (pengua), Intsia bijuga (ifit), Premna obtusifolia (ahgao), 
Eugenia reinwardtiana (aabang), Ficus spp. (fig), Elaeocarpus joga 
(yoga), and Tristiropsis obtusangula (faniok);
    (ii) Sufficient area of predominantly native forest to allow 
nesting at least 950 ft (290 m) from the nearest road and 203 ft (62 m) 
from the nearest forest edge and to support Mariana crow breeding 
territories (approximately 30 to 91 ac (12 to 37 ha)) and foraging 
areas for nonbreeding juvenile crows; and
    (iii) Standing dead trees and plant species for foraging such as 
Aglaia mariannensis (maypunayo), Artocarpus spp. (breadfruit), Cocos 
nucifera (coconut palm), fagot, Hibiscus tiliaceus (pago), ifit, 
Leucaena spp. (tangantangan), Ochrosia mariannensis (langiti), Pandanus 
tectorius (kafu), ahgao, fig, and joga.
    (3) Critical habitat does not include existing features and 
structures within the boundaries of the mapped units, such as 
buildings, roads, aqueducts, antennas, water tanks, agricultural 
fields, paved areas, lawns, and other urban landscaped areas not 
containing one or more of the primary constituent elements.
    (4) Critical habitat units are described below. Coordinates are in 
UTM Zone 55 with units in meters using North American Datum of 1983 
(NAD83)/World Geodetic System 1984 (WGS 84).

    (i) Note: Map 1--General Locations of Units for the Mariana Crow 
follows:

[[Page 62983]]

[GRAPHIC] [TIFF OMITTED] TR28OC04.002

    (ii) Guam, Mariana crow--Unit A (376 ac; 152 ha):
    (A) Unit A consists of the following nine boundary points: 267358, 
1509113; 267338, 1509107; 267277, 1509113; 271077, 1508881; 271071, 
1508878; 270766, 1509058; 269030, 1510105; 268659, 1510129; 267697, 
1509376.

    (B) Note: Map 2 showing Unit A for Mariana crow follows:

[[Page 62984]]

[GRAPHIC] [TIFF OMITTED] TR28OC04.003

BILLING CODE 4310-55-C
    (iii) Rota, Mariana crow--Unit B (6,033 ac; 2,442 ha):
    (A) Subunit B-1 (5,668 ac; 2,294 ha) consists of the following 659 
boundary points: 309251, 1569048; 309301, 1569048; 309410, 1569197; 
309423, 1569292; 309304, 1569302; 309319, 1569585; 309357, 1569581; 
309355, 1569603; 309339, 1569952; 309301, 1569932; 309216, 1570065; 
309393, 1570214; 309698, 1570373; 309955, 1570475; 310209, 1570549; 
310304, 1570532; 310484, 1570542; 310684, 1570556; 310823, 1570522; 
310988, 1570530; 311235, 1570509; 311484, 1570490; 311620, 1570458; 
311690, 1570436; 311807, 1570430; 312089, 1570412; 312189, 1570420; 
312276, 1570402; 312346, 1570422; 312447, 1570412; 312539, 1570386; 
312631, 1570349; 312734, 1570290; 312853, 1570230; 312913, 1570240; 
313008, 1570257; 313130, 1570243; 313360, 1570238; 313441, 1570212; 
313526, 1570211; 313598, 1570186; 313620, 1570151; 313479, 1570121; 
313387, 1570081; 313382, 1570051; 313488, 1570070; 313550, 1570037; 
313621, 1570022; 313704, 1570035; 313805, 1570011; 313843, 1569989; 
313932, 1569975; 313986, 1569956; 314024, 1569934; 314116, 1569951; 
314228, 1569932; 314336, 1569901; 314417, 1569879; 314482, 1569883; 
314529, 1569853; 314810, 1569769; 315250, 1569625; 315296, 1569566; 
315344, 1569506; 315399, 1569417; 315448, 1569341; 315469, 1569243; 
315450, 1569091; 315369, 1568959; 315274, 1568839; 315222, 1568741; 
315111, 1568557; 314963, 1568264; 314881, 1568159; 314832, 1568004; 
314827, 1567899; 314786, 1567817; 314751, 1567701; 314753, 1567609; 
314761, 1567278; 314810, 1567191; 314816, 1567112; 314767, 1567015; 
314724, 1566831; 314648, 1566774; 314637, 1566722; 314642, 1566578; 
314661, 1566508; 314564, 1566294; 314407, 1566085; 314241, 1565987; 
314051, 1565865; 313943, 1565830; 313816, 1565771; 313656, 1565613; 
313463, 1565456; 313333, 1565386; 313214, 1565304; 313076, 1565261; 
312973, 1565250; 312916, 1565275; 312799, 1565334; 312734, 1565396; 
312593, 1565475; 312311, 1565540; 312184, 1565554; 312037, 1565556; 
311932, 1565551; 311799, 1565524; 311560, 1565537; 311433, 1565515; 
311270, 1565453; 311140, 1565372; 311018, 1565334; 310901, 1565312; 
310628, 1565283; 310525, 1565285; 310408, 1565293; 310272, 1565264; 
310194, 1565226; 310132, 1565158; 310058, 1565104; 309912, 1564984; 
309828, 1564908; 309734, 1564821; 309609, 1564707; 309492, 1564673; 
309386, 1564583; 309213, 1564399; 309101, 1564206; 308944, 1564168; 
308874, 1564128; 308849, 1564068; 308855, 1564017; 308852, 1563900; 
308836, 1563803; 308814, 1563662; 308779, 1563537; 308779, 1563415; 
308773, 1563328; 308806, 1563285; 308809, 1563212; 308863, 1563087; 
308866, 1563011; 308814, 1562959; 308776, 1562905; 308741, 1562843; 
308730, 1562778; 308665, 1562734; 308583, 1562702; 308535, 1562705; 
308229, 1562564; 308080, 1562485; 307987, 1562390; 307929, 1562325; 
307947, 1562257; 307914, 1562238; 307898, 1562192; 307833, 1562054; 
307765, 1561919; 307705, 1561910; 307672, 1561903; 307667, 1561864; 
307725, 1561834; 307724, 1561797; 307673, 1561715; 307535, 1561609; 
307391, 1561447; 307228, 1561325; 307158, 1561333; 307012, 1561277; 
306779,

[[Page 62985]]

1561394; 306697, 1561388; 306585, 1561380; 306533, 1561376; 306416, 
1561344; 306336, 1561333; 306208, 1561331; 306166, 1561355; 306071, 
1561420; 305925, 1561471; 305857, 1561483; 305811, 1561478; 305774, 
1561437; 305748, 1561348; 305754, 1561287; 305801, 1561286; 305891, 
1561175; 305848, 1561126; 305833, 1561094; 305864, 1561050; 305810, 
1561036; 305734, 1561036; 305703, 1561001; 305674, 1560993; 305643, 
1561014; 305580, 1560960; 305531, 1560933; 305492, 1560945; 305476, 
1560972; 305452, 1560994; 305406, 1560991; 305370, 1561022; 305325, 
1561047; 305327, 1561078; 305320, 1561099; 305274, 1561148; 305244, 
1561170; 305238, 1561187; 305217, 1561215; 305156, 1561235; 305084, 
1561233; 305054, 1561234; 305057, 1561263; 305042, 1561436; 305031, 
1561528; 305041, 1561559; 305075, 1561668; 305091, 1561734; 305109, 
1561806; 304845, 1561793; 304828, 1561737; 304789, 1561680; 304730, 
1561636; 304682, 1561670; 304609, 1561726; 304537, 1561729; 304543, 
1561756; 304426, 1561738; 304386, 1561662; 304317, 1561706; 304215, 
1561666; 304099, 1561690; 304021, 1561789; 304088, 1561845; 304062, 
1561922; 304177, 1561987; 304084, 1562103; 303922, 1562290; 303891, 
1562318; 303867, 1562349; 303812, 1562414; 303739, 1562556; 303701, 
1562508; 303676, 1562471; 303652, 1562522; 303575, 1562516; 303540, 
1562487; 303542, 1562433; 303458, 1562411; 303434, 1562393; 303422, 
1562453; 303317, 1562343; 303325, 1562313; 303302, 1562284; 303276, 
1562282; 303240, 1562260; 303217, 1562242; 303167, 1562149; 303138, 
1562129; 303111, 1562076; 303064, 1562084; 303038, 1562069; 302998, 
1562079; 302959, 1562068; 302931, 1562030; 302862, 1562031; 302847, 
1562023; 302823, 1562047; 302750, 1561973; 302708, 1561934; 302622, 
1561980; 302539, 1561950; 302478, 1561980; 302420, 1561942; 302396, 
1561965; 302352, 1562007; 302328, 1562056; 302315, 1562081; 302288, 
1562112; 302262, 1562161; 302249, 1562185; 302232, 1562243; 302240, 
1562278; 302258, 1562311; 302306, 1562355; 302355, 1562379; 302388, 
1562398; 302411, 1562418; 302443, 1562470; 302456, 1562496; 302448, 
1562537; 302402, 1562623; 302354, 1562673; 302366, 1562698; 302357, 
1562716; 302346, 1562711; 302213, 1562810; 302163, 1562866; 302066, 
1562946; 302056, 1562985; 302016, 1562990; 301955, 1563034; 301936, 
1563076; 301882, 1563096; 301867, 1563093; 301822, 1563158; 301764, 
1563244; 301677, 1563328; 301580, 1563379; 301518, 1563346; 301482, 
1563379; 301494, 1563418; 301572, 1563445; 301601, 1563552; 301514, 
1563608; 301374, 1563700; 301316, 1563740; 301140, 1563860; 300871, 
1563988; 300689, 1564203; 300484, 1564307; 300566, 1564450; 300389, 
1564638; 300472, 1564790; 300547, 1564683; 300696, 1564797; 300709, 
1564865; 300724, 1564935; 300733, 1564985; 300802, 1564997; 300809, 
1565065; 300824, 1565186; 300889, 1565296; 300927, 1565332; 301139, 
1565378; 301166, 1565499; 301310, 1565554; 301340, 1565496; 301493, 
1565470; 301602, 1565455; 301726, 1565444; 301852, 1565428; 301951, 
1565444; 302023, 1565520; 302279, 1565526; 302273, 1565424; 302522, 
1565388; 302630, 1565372; 302914, 1565332; 303045, 1565414; 303213, 
1565437; 303283, 1565463; 303299, 1565568; 303353, 1565617; 303429, 
1565705; 303551, 1565855; 303589, 1565862; 303662, 1565909; 303709, 
1565943; 303699, 1565972; 303790, 1566116; 303814, 1566104; 303914, 
1566165; 303961, 1566093; 304048, 1566137; 304008, 1566221; 303912, 
1566211; 303876, 1566200; 303784, 1566149; 303710, 1566324; 303725, 
1566359; 303889, 1566367; 303933, 1566390; 303906, 1566437; 303985, 
1566502; 304046, 1566507; 304164, 1566279; 304241, 1566149; 304173, 
1566049; 304116, 1566004; 304118, 1565967; 304208, 1565992; 304274, 
1566044; 304578, 1566092; 304532, 1566129; 304531, 1566215; 304506, 
1566303; 304729, 1566316; 304773, 1566274; 304902, 1566268; 304962, 
1566265; 305087, 1566248; 305070, 1566133; 305108, 1566102; 305082, 
1566065; 305145, 1565958; 305177, 1565915; 305235, 1565955; 305421, 
1565782; 305452, 1565756; 305596, 1565779; 305683, 1565792; 305791, 
1565838; 305893, 1565886; 306023, 1565952; 306135, 1566064; 306203, 
1566119; 306251, 1566060; 306555, 1566080; 306664, 1566164; 306780, 
1566264; 306834, 1566273; 307071, 1566336; 307106, 1566329; 307223, 
1566324; 307307, 1566290; 307304, 1566221; 307397, 1566214; 307647, 
1566199; 307865, 1566154; 307896, 1566125; 307979, 1566062; 308031, 
1566047; 308267, 1565952; 308267, 1565855; 308315, 1565841; 308359, 
1565901; 308432, 1565806; 308535, 1565518; 308562, 1565402; 308545, 
1565397; 308590, 1565223; 308676, 1565242; 308700, 1565190; 308860, 
1565315; 309031, 1565486; 309093, 1565494; 309270, 1565486; 309332, 
1565415; 309354, 1565337; 309367, 1565161; 309389, 1565153; 309440, 
1565161; 309492, 1565131; 309497, 1565052; 309524, 1565041; 309568, 
1565055; 309587, 1565096; 309570, 1565131; 309579, 1565174; 309560, 
1565223; 309573, 1565261; 309608, 1565299; 309578, 1565369; 309820, 
1565486; 310001, 1565592; 310154, 1565639; 310358, 1565685; 310369, 
1565665; 310596, 1565693; 310642, 1565657; 310700, 1565655; 310795, 
1565726; 310937, 1565754; 310976, 1565767; 311272, 1565802; 311282, 
1565660; 311408, 1565703; 311494, 1565731; 311616, 1565734; 311782, 
1565734; 311858, 1565745; 312021, 1565735; 312100, 1565743; 312203, 
1565779; 312306, 1565776; 312392, 1565841; 312409, 1565811; 312398, 
1565757; 312439, 1565681; 312479, 1565670; 312550, 1565678; 312596, 
1565678; 312601, 1565730; 312574, 1565776; 312533, 1565838; 312950, 
1565848; 312983, 1565823; 313055, 1565882; 313070, 1565943; 313113, 
1566024; 313256, 1566157; 313460, 1566223; 313496, 1566305; 313555, 
1566443; 313631, 1566481; 313723, 1566467; 313799, 1566489; 313878, 
1566481; 313921, 1566505; 313929, 1566540; 313902, 1566559; 313864, 
1566557; 313826, 1566521; 313788, 1566543; 313790, 1566603; 313783, 
1566660; 313813, 1566703; 313862, 1566757; 313832, 1566768; 313788, 
1566749; 313704, 1566717; 313615, 1566668; 313569, 1566627; 313498, 
1566527; 313478, 1566478; 313376, 1566382; 313136, 1566223; 313101, 
1566254; 313101, 1566366; 313059, 1566413; 313016, 1566416; 312962, 
1566413; 312874, 1566387; 312529, 1566471; 312501, 1566632; 312565, 
1566815; 312693, 1566785; 312693, 1566897; 312807, 1566917; 312813, 
1566980; 312802, 1567132; 312937, 1567124; 312932, 1566925; 312996, 
1566927; 313121, 1567027; 313135, 1567050; 313217, 1566988; 313282, 
1566936; 313292, 1566858; 313309, 1566787; 313283, 1566731; 313320, 
1566717; 313355, 1566728; 313360, 1566782; 313360, 1566833; 313368, 
1566863; 313401, 1566887; 313431, 1566898; 313466, 1566955; 313562, 
1566958; 313585, 1567052; 313455, 1567137; 313195, 1567213; 313129, 
1567244; 313040, 1567253; 312907, 1567257; 312912, 1567448; 312909, 
1567729; 313019, 1567652; 313276, 1567581; 313810, 1567411; 313916, 
1567327; 313989, 1567327; 314106, 1567237; 314184, 1567248; 314220, 
1567360; 314192, 1567421; 314225, 1567533; 314192, 1567611; 314198, 
1567679; 314314, 1567766; 314371, 1567831; 314390, 1567888; 314428, 
1568004; 314439, 1568107; 314482, 1568185; 314507, 1568231; 314596,

[[Page 62986]]

1568270; 314697, 1568359; 314764, 1568357; 314813, 1568378; 314844, 
1568493; 314973, 1568590; 314995, 1568674; 314984, 1568766; 315011, 
1568915; 315022, 1569162; 314960, 1569181; 314905, 1569200; 314843, 
1569278; 314840, 1569343; 314846, 1569390; 314819, 1569406; 314783, 
1569398; 314759, 1569406; 314743, 1569444; 314637, 1569506; 314553, 
1569541; 314539, 1569571; 314569, 1569612; 314396, 1569652; 314317, 
1569655; 314081, 1569785; 313920, 1569813; 313815, 1569818; 313257, 
1569826; 312876, 1569836; 312896, 1569509; 312912, 1569188; 312915, 
1568976; 312795, 1569012; 312588, 1568997; 312425, 1569062; 312181, 
1569041; 312012, 1569001; 311943, 1568999; 311943, 1568953; 311818, 
1568948; 311731, 1568905; 311711, 1568926; 311675, 1568917; 311649, 
1568994; 311602, 1569082; 311636, 1569226; 311450, 1569290; 311381, 
1569290; 311312, 1569132; 311517, 1569055; 311570, 1568854; 311700, 
1568716; 311662, 1568629; 311565, 1568547; 311369, 1568683; 311170, 
1568731; 311065, 1568532; 310647, 1568535; 310624, 1568581; 310820, 
1568660; 310795, 1568734; 311062, 1568848; 311027, 1569012; 310690, 
1568967; 310551, 1568963; 310396, 1568926; 310236, 1568926; 310126, 
1568927; 310120, 1568838; 310077, 1568824; 309975, 1568770; 309799, 
1568773; 309579, 1568794; 309474, 1568767; 309396, 1568760; 309268, 
1568888; 309286, 1568889; 309252, 1569042; 309251, 1569048.
    (B) Excluding seven areas:
    (1) Bounded by the following five points (7 ac; 3 ha): 309786, 
1569596; 309800, 1569484; 310060, 1569596; 310059, 1569695; 310055, 
1569695.
    (2) Bounded by the following four points (13 ac; 5 ha): 310365, 
1569567; 310716, 1569564; 310716, 1569718; 310366, 1569717.
    (3) Bounded by the following 53 points (46 ac; 19 ha): 308686, 
1564398; 308762, 1564422; 308791, 1564444; 308793, 1564466; 308784, 
1564497; 308797, 1564525; 308821, 1564528; 308848, 1564503; 308874, 
1564514; 308905, 1564532; 308955, 1564666; 308979, 1564736; 308994, 
1564814; 309056, 1564845; 309090, 1564889; 309126, 1564869; 309248, 
1564976; 309277, 1565027; 309288, 1565060; 309280, 1565083; 309271, 
1565117; 309213, 1565113; 309170, 1565106; 309132, 1565058; 309100, 
1565068; 309047, 1565112; 308992, 1565145; 308979, 1565217; 308948, 
1565228; 308887, 1565176; 308883, 1565150; 308900, 1565075; 308876, 
1564990; 308839, 1564994; 308821, 1564996; 308791, 1564924; 308813, 
1564898; 308839, 1564906; 308870, 1564928; 308878, 1564915; 308808, 
1564760; 308756, 1564683; 308703, 1564628; 308672, 1564595; 308668, 
1564571; 308677, 1564563; 308716, 1564574; 308718, 1564560; 308673, 
1564489; 308647, 1564459; 308607, 1564406; 308654, 1564386; 308671, 
1564401.
    (4) Bounded by the following 80 points (84 ac; 34 ha): 307624, 
1562456; 307687, 1562504; 307700, 1562504; 307723, 1562493; 307768, 
1562521; 307804, 1562511; 307827, 1562494; 307871, 1562552; 307897, 
1562565; 307928, 1562565; 307943, 1562545; 307959, 1562519; 307976, 
1562515; 308031, 1562572; 307996, 1562594; 307980, 1562618; 307978, 
1562640; 307930, 1562655; 307908, 1562675; 307891, 1562697; 307891, 
1562743; 307856, 1562771; 307851, 1562810; 307902, 1562852; 308068, 
1562957; 308134, 1562964; 308164, 1562997; 308173, 1563049; 308204, 
1563115; 308197, 1563150; 308171, 1563159; 308149, 1563172; 308158, 
1563220; 308153, 1563290; 308153, 1563334; 308184, 1563347; 308234, 
1563340; 308316, 1563418; 308398, 1563405; 308418, 1563437; 308367, 
1563499; 308373, 1563676; 308215, 1563726; 308158, 1563576; 308126, 
1563534; 308091, 1563547; 308052, 1563487; 308025, 1563486; 307965, 
1563436; 307886, 1563373; 307872, 1563313; 307872, 1563199; 307896, 
1563181; 307911, 1563141; 307871, 1563095; 307869, 1563073; 307904, 
1563069; 307880, 1563003; 307862, 1563010; 307849, 1563025; 307803, 
1563019; 307807, 1562964; 307792, 1562951; 307753, 1562946; 307713, 
1562935; 307700, 1562911; 307704, 1562881; 307753, 1562828; 307768, 
1562797; 307733, 1562745; 307731, 1562727; 307781, 1562683; 307729, 
1562598; 307713, 1562633; 307689, 1562635; 307646, 1562613; 307495, 
1562647; 307488, 1562556; 307488, 1562533; 307495, 1562490.
    (5) Bounded by the following seven points (9 ac; 3 ha): 308109, 
1562663; 308114, 1562663; 308280, 1562825; 308197, 1562937; 308066, 
1562859; 308074, 1562799; 308043, 1562743.
    (6) Bounded by the following 225 points (4,517 ac; 1,828 ha): 
304411, 1562555; 304424, 1562519; 304395, 1562481; 304302, 1562446; 
304273, 1562406; 304249, 1562358; 304254, 1562282; 304261, 1562234; 
304267, 1562190; 304322, 1562154; 304363, 1562125; 304393, 1562154; 
304450, 1562187; 304496, 1562219; 304553, 1562195; 304591, 1562252; 
304677, 1562222; 304751, 1562222; 304756, 1562184; 304707, 1562097; 
304732, 1562065; 304778, 1562078; 304848, 1562116; 304883, 1562133; 
304897, 1562100; 304919, 1562054; 304965, 1562055; 305014, 1562130; 
305027, 1562070; 305087, 1562070; 305138, 1562106; 305178, 1562184; 
305273, 1562139; 305332, 1562082; 305502, 1562089; 305578, 1562186; 
305634, 1562202; 305663, 1562153; 305654, 1562055; 305625, 1562051; 
305559, 1561906; 305499, 1561766; 305502, 1561677; 305536, 1561661; 
305583, 1561645; 305628, 1561651; 305657, 1561733; 305750, 1562039; 
305797, 1562046; 305851, 1562027; 305884, 1561946; 305962, 1561919; 
306000, 1561908; 306049, 1561932; 306083, 1561909; 306124, 1561894; 
306125, 1561840; 306152, 1561740; 306149, 1561664; 306171, 1561612; 
306196, 1561564; 306331, 1561523; 306475, 1561523; 306637, 1561536; 
306678, 1561599; 306697, 1561618; 306795, 1561601; 306862, 1561696; 
306865, 1561764; 306854, 1561781; 306837, 1561785; 306821, 1561831; 
306726, 1561820; 306597, 1561737; 306383, 1561737; 306312, 1561775; 
306280, 1561824; 306280, 1561867; 306328, 1561986; 306326, 1562043; 
306369, 1562146; 306348, 1562193; 306359, 1562248; 306396, 1562413; 
306211, 1562495; 306212, 1562642; 306491, 1562590; 306893, 1562575; 
307497, 1563122; 307570, 1563395; 307632, 1563500; 307765, 1563576; 
307881, 1563606; 307963, 1563657; 308014, 1563772; 308065, 1564029; 
308062, 1564310; 308088, 1564565; 308044, 1564754; 307833, 1564944; 
307768, 1565047; 307819, 1565112; 307805, 1565168; 307749, 1565378; 
307765, 1565443; 307822, 1565486; 307811, 1565570; 307779, 1565654; 
307817, 1565697; 307825, 1565828; 307842, 1565852; 307741, 1565909; 
307639, 1565920; 307442, 1565987; 307386, 1566039; 307223, 1566107; 
307152, 1566137; 307112, 1566137; 307082, 1566183; 307047, 1566199; 
306955, 1566199; 306887, 1566191; 306824, 1566142; 306643, 1566020; 
306544, 1565957; 306401, 1565931; 306247, 1565886; 306225, 1565841; 
306113, 1565820; 306065, 1565846; 305956, 1565740; 305864, 1565621; 
305851, 1565381; 305732, 1565386; 305724, 1565275; 305583, 1565276; 
305305, 1565376; 305244, 1565424; 305104, 1565593; 304938, 1565657; 
304768, 1565694; 304538, 1565717; 304173, 1565710; 304059, 1565694; 
303985, 1565704; 303930, 1565725; 303903, 1565726; 303881, 1565697; 
303879, 1565686; 303866, 1565617; 303819, 1565548; 303760, 1565524; 
303670, 1565498; 303545, 1565484; 303504, 1565453; 303445, 1565416; 
303355, 1565352; 303191, 1565289; 303022, 1565141; 302927, 1565120; 
302874,

[[Page 62987]]

1565088; 302601, 1565117; 302527, 1565140; 302218, 1565153; 302086, 
1565142; 301948, 1565092; 301810, 1565044; 301728, 1565024; 301675, 
1565037; 301588, 1565018; 301416, 1565032; 301326, 1565030; 301284, 
1565055; 301215, 1564939; 301207, 1564880; 301178, 1564669; 301199, 
1564611; 301215, 1564529; 301236, 1564468; 301284, 1564460; 301363, 
1564476; 301459, 1564476; 301604, 1564444; 301705, 1564365; 301734, 
1564277; 301781, 1564145; 301827, 1564059; 301898, 1564026; 301972, 
1563986; 302078, 1563923; 302144, 1563891; 302215, 1563817; 302318, 
1563661; 302371, 1563526; 302605, 1563264; 302705, 1563179; 302736, 
1563065; 302743, 1562848; 302859, 1562481; 302916, 1562366; 302961, 
1562293; 302983, 1562274; 303027, 1562300; 303093, 1562406; 303115, 
1562459; 303159, 1562565; 303190, 1562612; 303214, 1562638; 303250, 
1562687; 303323, 1562713; 303478, 1562733; 303626, 1562749; 303778, 
1562811; 303847, 1562837; 303900, 1562902; 303986, 1562937; 304081, 
1562943; 304196, 1562928; 304284, 1562884; 304280, 1562804; 304302, 
1562749; 304315, 1562704; 304363, 1562636; 304368, 1562613; 304379, 
1562567.
    (7) Bounded by the following nine points (9 ac; 3 ha): 303885, 
1562540; 303916, 1562411; 303966, 1562370; 304088, 1562398; 304081, 
1562449; 304077, 1562587; 304072, 1562590; 303992, 1562579; 303895, 
1562564.
    (C) Subunit B-2 (365 ac; 148 ha) consists of the following 64 
boundary points: 308173, 1567760; 308132, 1567750; 308105, 1567693; 
308088, 1567642; 308013, 1567625; 307908, 1567625; 307634, 1567679; 
307580, 1567659; 307475, 1567659; 307410, 1567632; 307391, 1567599; 
307208, 1567603; 307154, 1567586; 306999, 1567537; 307000, 1567462; 
306988, 1567448; 306749, 1567420; 306700, 1567489; 306815, 1567568; 
307027, 1567721; 307024, 1567751; 307254, 1567843; 307310, 1567846; 
307444, 1568042; 307502, 1568160; 307586, 1568258; 307614, 1568414; 
307732, 1568533; 307837, 1568655; 307942, 1568733; 307986, 1568682; 
308071, 1568641; 308190, 1568658; 308312, 1568709; 308444, 1568763; 
308559, 1568814; 308634, 1568872; 308630, 1568950; 308684, 1568980; 
308810, 1568956; 308942, 1569004; 309033, 1569041; 309095, 1569049; 
309113, 1568883; 309233, 1568887; 309213, 1568855; 309372, 1568655; 
309345, 1568604; 309386, 1568509; 309416, 1568424; 309399, 1568380; 
309335, 1568424; 309288, 1568401; 309243, 1568452; 309196, 1568431; 
309108, 1568428; 309054, 1568428; 308968, 1568389; 308922, 1568387; 
308909, 1568356; 308422, 1568364; 308411, 1567945; 308285, 1567960; 
308240, 1567738.

    (D) Note: Map 3 showing Unit B for Mariana crow follows:
BILLING CODE 4310-55-P

[[Page 62988]]

[GRAPHIC] [TIFF OMITTED] TR28OC04.004

* * * * *
Guam Micronesian Kingfisher (Halcyon cinnamomina cinnamomina)

    (1) The critical habitat unit for the Guam Micronesian kingfisher 
is depicted for the Territory of Guam on the maps below.
    (2) The primary constituent elements required by the Guam 
Micronesian kingfisher for the biological needs of foraging, 
sheltering, roosting, nesting, and rearing of young are found in areas 
that support limestone, secondary, ravine, swamp, agricultural, and 
coastal forests composed of native and introduced plant species. These 
forest types include the primary constituent elements of:
    (i) Closed canopy and well-developed understory vegetation; large 
(approximately 43 cm (17 in) diameter at breast height), standing dead 
trees (especially Tristiropsis obtusangula (faniok), Pisonia grandis 
(umumu), Artocarpus spp. (breadfruit), Ficus spp. (fig), and Cocos 
nucifera (coconut palm)); mud nests of Nasutitermes spp. termites; and 
root masses of epiphytic ferns for breeding;
    (ii) Sufficiently diverse structure to provide exposed perches and 
ground surfaces, leaf litter, and other substrates that support a wide 
range of vertebrate and invertebrate prey species for foraging 
kingfishers; and
    (iii) Sufficient overall breeding and foraging area to support 
kingfisher territories of approximately 25 ac (10 ha) each.
    (3) Critical habitat does not include existing features and 
structures within the boundaries of the mapped units, such as 
buildings, roads, aqueducts, antennas, water tanks, agricultural 
fields, paved areas, lawns, and other urban landscaped areas not 
containing one or more of the primary constituent elements.
    (4) The critical habitat unit is described below. Coordinates are 
in UTM Zone 55 with units in meters using North American Datum of 1983 
(NAD83) / World Geodetic System 1984 (WGS 84).

    (i) Note: Map 1-General Location of the Guam Micronesian 
Kingfisher Unit--follows:

[[Page 62989]]

[GRAPHIC] [TIFF OMITTED] TR28OC04.005

    (ii) Guam, Guam Micronesian kingfisher (376 ac; 152 ha):
    (A) Unit consists of the following nine boundary points: 267358, 
1509113; 267338, 1509107; 267277, 1509113; 271077, 1508881; 271071, 
1508878; 270766, 1509058; 269030, 1510105; 268659, 1510129; 267697, 
1509376.

    (B) Note: Map 2 showing Guam Micronesian Kingfisher Unit 
follows:

[[Page 62990]]

[GRAPHIC] [TIFF OMITTED] TR28OC04.006

* * * * *

    Dated: October 18, 2004.
Craig Manson,
Assistant Secretary for Fish and Wildlife and Parks.
[FR Doc. 04-23648 Filed 10-27-04; 8:45 am]
BILLING CODE 4310-55-C