[Federal Register Volume 86, Number 85 (Wednesday, May 5, 2021)]
[Rules and Regulations]
[Pages 23869-23872]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2021-09489]


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DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service

50 CFR Part 17

[Docket No. FWS-R8-ES-2021-0009; FF09E21000 FXES11110900000 212]


Endangered and Threatened Wildlife and Plants; Three Salamander 
Species Not Warranted for Listing as Endangered or Threatened Species

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Notification of findings.

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SUMMARY: We, the U.S. Fish and Wildlife Service (Service), announce 
findings that three salamander species, the Samwel salamander 
(Hydromantes samweli), Shasta salamander, (H. shastae), and Wintu 
salamander (H. wintu), are not warranted for listing as endangered or 
threatened species under the Endangered Species Act of 1973, as amended 
(Act). However, we ask the public to submit to us at any time any new 
information relevant to the status of any of the three species or their 
habitats.

DATES: The findings in this document were made on May 5, 2021.

ADDRESSES: Detailed descriptions of the bases and supporting 
information for these findings is available on the internet at http://www.regulations.gov at Docket No. FWS-R8-ES-2021-0009 or by contacting 
the person specified under FOR FURTHER INFORMATION CONTACT. Please 
submit any new information, materials, comments, or questions 
concerning this finding to the appropriate person specified under FOR 
FURTHER INFORMATION CONTACT.

FOR FURTHER INFORMATION CONTACT: Jenny Ericson, Field Supervisor, U.S. 
Fish and Wildlife Service, Yreka Fish and Wildlife Office, 1829 S 
Oregon St., Yreka, CA 96097; telephone 530-841-3115. If you use a 
telecommunications device for the deaf (TDD), please call the Federal 
Relay Service at 800-877-8339.

SUPPLEMENTARY INFORMATION:

Background

    Under section 4(b)(3)(B) of the Act (16 U.S.C. 1531 et seq.), we 
are required to make a finding whether or not a petitioned action is 
warranted within 12 months after receiving any petition for which we 
have determined contains substantial scientific or commercial 
information indicating that the petitioned action may be warranted 
(``12-month finding''). We must make a finding that the petitioned 
action is: (1) Not warranted; (2) warranted; or (3) warranted but 
precluded. We must publish a notice of these 12-month findings in the 
Federal Register.

Summary of Information Pertaining to the Five Factors

    Section 4 of the Act (16 U.S.C. 1533) and the implementing 
regulations at part 424 of title 50 of the Code of Federal Regulations 
(50 CFR part 424) set forth procedures for adding species to, removing 
species from, or reclassifying species on the Lists of Endangered and 
Threatened Wildlife and Plants (Lists). The Act defines ``species'' as 
including any subspecies of fish or wildlife or plants, and any 
distinct population segment of any species of vertebrate fish or 
wildlife which interbreeds when mature (16 U.S.C. 1532(16). The Act 
defines ``endangered species'' as any species that is in danger of 
extinction throughout all or a significant portion of its range (16 
U.S.C. 1532(6)), and ``threatened species'' as any species that is 
likely to become an endangered species within the foreseeable future 
throughout all or a significant portion of its range (16 U.S.C. 
1532(20)). Under section 4(a)(1) of the Act, a species may be 
determined to be an endangered species or a threatened species because 
of any of the following five factors:
    (A) The present or threatened destruction, modification, or 
curtailment of its habitat or range;
    (B) Overutilization for commercial, recreational, scientific, or 
educational purposes;
    (C) Disease or predation;
    (D) The inadequacy of existing regulatory mechanisms; or
    (E) Other natural or manmade factors affecting its continued 
existence.
    These factors represent broad categories of natural or human-caused 
actions or conditions that could have an effect on a species' continued 
existence. In evaluating these actions and conditions, we look for 
those that may have a negative effect on individuals of the species, as 
well as other actions or conditions that may ameliorate any negative 
effects or may have positive effects.
    We use the term ``threat'' to refer in general to actions or 
conditions that are known to or are reasonably likely to negatively 
affect individuals of a species. The term ``threat'' includes actions 
or conditions that have a direct impact on individuals (direct 
impacts), as well as those that affect individuals through alteration 
of their habitat or required resources (stressors). The term ``threat'' 
may encompass--either together or separately--the source of the action 
or condition or the action or condition itself. However, the mere 
identification of any threat(s) does not necessarily mean that the 
species meets the statutory definition of an ``endangered species'' or 
a ``threatened species.'' In determining whether a species meets either 
definition, we must evaluate all identified threats by considering the 
expected response by the species, and the effects of the threats--in 
light of those actions and conditions that will ameliorate the 
threats--on an individual, population, and species level. We evaluate 
each threat and its expected effects on the species, then analyze the 
cumulative effect of all of the threats on the species as a whole. We 
also consider the cumulative effect of the threats in light of those 
actions and conditions that will have positive effects on the species, 
such as any existing regulatory mechanisms or conservation efforts. The 
Secretary determines whether the species meets the definition of an 
``endangered species'' or a ``threatened species'' only after 
conducting this cumulative analysis and describing the

[[Page 23870]]

expected effect on the species now and in the foreseeable future.
    The Act does not define the term ``foreseeable future,'' which 
appears in the statutory definition of ``threatened species.'' Our 
implementing regulations at 50 CFR 424.11(d) set forth a framework for 
evaluating the foreseeable future on a case-by-case basis. The term 
``foreseeable future'' extends only so far into the future as the 
Service can reasonably determine that both the future threats and the 
species' responses to those threats are likely. In other words, the 
foreseeable future is the period of time in which we can make reliable 
predictions. ``Reliable'' does not mean ``certain''; it means 
sufficient to provide a reasonable degree of confidence in the 
prediction. Thus, a prediction is reliable if it is reasonable to 
depend on it when making decisions.
    It is not always possible or necessary to define foreseeable future 
as a particular number of years. Analysis of the foreseeable future 
uses the best scientific and commercial data available and should 
consider the timeframes applicable to the relevant threats and to the 
species' likely responses to those threats in view of its life-history 
characteristics. Data that are typically relevant to assessing the 
species' biological response include species-specific factors such as 
lifespan, reproductive rates or productivity, certain behaviors, and 
other demographic factors.
    In conducting our evaluation of the five factors provided in 
section 4(a)(1) of the Act to determine whether the Samwel salamander 
(Hydromantes samweli), Shasta salamander, (H. shastae), or Wintu 
salamander (H. wintu) (together referred to as the Shasta Complex 
salamanders) meet the definition of ``endangered species'' or 
``threatened species,'' we considered and thoroughly evaluated the best 
scientific and commercial information available regarding the past, 
present, and future threats for the three species. We reviewed the 
petition, information available in our files, and other available 
published and unpublished information. Our evaluation included 
information from recognized experts as well as Federal and State 
government resource and land management agencies.
    We developed a species status assessment (SSA) (Service 2021a, 
entire) for the Shasta Complex salamanders that contains more detailed 
biological information, species' needs information, and information on 
the threats facing the three species and their habitat now and into the 
future. We also developed a species assessment form (Service 2021b, 
entire) that contains our analysis of the listing factors and documents 
our determination that these species do not meet the definition of an 
endangered species or a threatened species. This supporting information 
can be found on the internet at http://www.regulations.gov under Docket 
No. FWS-R8-ES-2021-0009. The following is an informational summary of 
the finding for the Shasta Complex salamanders and information found in 
the SSA and species assessment form for the three species. Please see 
those documents for additional information.

Previous Federal Actions

    On July 11, 2012, we received a petition from the Center for 
Biological Diversity to list 53 species of reptiles and amphibians, 
including the Shasta salamander (Hydromantes shastae), as endangered or 
threatened under the Act (Center for Biological Diversity 2012, 
entire). On September 18, 2015, we published in the Federal Register 
(80 FR 56423) our 90-day finding that the petition presented 
substantial scientific or commercial information indicating that 
listing the Shasta salamander as endangered or threatened may be 
warranted based on impacts to the species' habitat (Factor A) and other 
natural or humanmade factors (Factor E). On April 23, 2018, the 
petitioners (Center for Biological Diversity 2018, entire) supplied us 
with a publication regarding a taxonomic split of the Shasta salamander 
into three separate species (Samwel salamander (Hydromantes samweli), 
Shasta salamander (H. shastae), and Wintu salamander (H. wintu) 
(Bingham et al. 2018, entire)), and requested that we consider this 
information in our status review. On November 29, 2018, we received a 
complaint for not completing the 12-month finding. Per a court approved 
settlement agreement, we agreed to deliver a 12-month finding for the 
Shasta salamander to the Federal Register by April 30, 2021. This 
document complies with the settlement agreement.

Species Description

    The Shasta salamander was first described in 1953, as a single 
species (Gorman and Camp 1953, entire). Since that time the scientific 
community has determined that the Shasta salamander is made up of three 
separate individual species (Bingham et al. 2018, entire). The three 
species are identified as the Samwel salamander (Hydromantes samweli), 
Shasta salamander (H. shastae), and Wintu salamander (H. wintu). We 
refer to the three species in the species assessment form (Service 
2021b, entire), the SSA (Service 2021a, entire), and this document as 
the Shasta Complex salamanders. The three salamanders are lungless web-
footed salamanders that breathe through their skin and the mucous 
membrane in their mouth and throat. The three species are very similar 
except that the Shasta salamander has a longer third digit on the pes 
(rear foot). The approximate length of the three species is 
approximately 2 to 2.5 inches (51 to 64 millimeters). The three species 
have short, strongly tapered, generally blunt-tipped tails and broad, 
flattened heads.

Taxonomy and Genetic Information

    From 1953 to 2018, the Shasta salamander was recognized as a single 
species (Gorman and Camp 1953, entire; Gorman 1964, entire; Rovito 
2010, entire). However, a high degree of variation in genetic structure 
and genetic divergence was found after both mitochondrial and nuclear 
DNA studies of the species were completed (Wake et al. 1978, entire; 
Wake and Papenfuss 2005, entire; Bingham 2007, entire). As such, and as 
noted above, in 2018 the Shasta salamander was split into three 
separate species (Bingham et al. 2018, entire). Based on this study, 
there are three divergent lineages made up of five genetic clades (a 
group of organisms that evolved from a common ancestor) (Bingham et al. 
2018, pp. 403, 407). Hydromantes shastae and H. wintu make up two of 
the clades, with H. samweli having three genetic clades (Bingham et al. 
2018, p. 408). This information has been published and the split of the 
Shasta salamander has been accepted by the scientific community. After 
review of this information, we have determined that the three species 
are listable entities under the Act.

Habitat/Life History

    The three species are strictly terrestrial for their entire lives 
and must remain moist in order for individuals to absorb oxygen through 
their skin. Consequently, the three salamanders are surface active only 
when it is moist and cool. Historically, the three species were thought 
to occur only in and around limestone rock outcrops or within limestone 
caves. In the last 25 years, the three species have been found in a 
broader range of habitats away from limestone, including other types of 
rock outcrops, and even habitats with no rock outcrop associations, 
such as areas with thick vegetative litter (Lindstrand 2000, pp. 259-
261; Nauman and Olson 2004, pp. 35-38; Lindstrand et al. 2012, pp. 236-
241).

[[Page 23871]]

Range/Distribution

    The historical range of the three species is restricted to 
unglaciated and non-volcanized forested areas within the lower McCloud 
River, Pit River, Sacramento River, and Squaw Creek watersheds in 
Shasta County, California, with Samwel salamander extending slightly 
further west. The absence of glaciation and volcanic activity has 
maintained the limestone and other rock outcrops and subsurface 
characteristics of the area occupied by the three species. Although 
current survey efforts have identified the distribution of the three 
species within their respective ranges, the exact distribution and 
abundance of the three species within the larger range of suitable 
geologic habitat around and near Shasta Lake is unknown, as surveys in 
such areas are difficult to obtain given the physical restrictions of 
accessing the terrain and difficulty of detecting individuals. The 
current range of the three species is similar to their historical range 
with likely some loss due to the construction of Shasta Dam and 
subsequent inundation from Shasta Lake in the 1950s.

Evaluation of Status

    We have carefully assessed the best scientific and commercial 
information available regarding the past, present, and future threats 
to the Samwel salamander, Shasta salamander, and Wintu salamander, and 
we evaluated all relevant factors under the five listing factors, 
including any regulatory mechanisms and conservation measures 
addressing these threats and the cumulative impact of these threats. 
Our analysis identified the threats from habitat loss, degradation, and 
modification due to vegetation management and wildfire (Factor A) and 
the effects of increased temperature and reduced moisture from climate 
change (Factor E) as the main threats currently facing the three 
species. We also identified the additional threat of the proposed 
action of raising Shasta Dam and the subsequent removal and inundation 
of habitat for the three species (Factor E).
    Existing conservation measures for the species and their habitats 
include State and Federal protections and conservation measures. The 
Shasta salamander was listed by the State of California as a threatened 
species under the California Endangered Species Act (CESA) before it 
was split into three separate species. The State has not officially 
recognized the split; however, the State listing provides measures to 
protect and conserve all three species. For example, any road 
construction or maintenance actions associated with timber harvest 
plans or other roadways managed by Caltrans, the counties, or other 
private landowners undergo environmental compliance review with the 
State under CESA and the California Environmental Quality Act, to 
ensure that impacts to species listed as threatened by the State are 
mitigated. The three species are also managed by the U.S. Forest 
Service and Bureau of Land Management as sensitive species and 
currently receive protection through conservation measures and best 
management practices under the Northwest Forest Plan's Survey and 
Manage program and Sensitive Species programs. These measures reduce or 
eliminate impacts to rock outcrops, limestone areas, and known 
salamander occurrence sites during road construction and maintenance 
activities as well as any vegetation management actions.
    After review of the threats identified above and cumulative effects 
facing the species, as well as existing conservation measures, we 
conclude that habitat loss or disturbance from various threats (e.g., 
vegetation management activities, wildfire, climatic changes) within 
the range of the Samwel, Shasta, and Wintu salamanders have likely 
impacted individuals of each species. However, the magnitude and extent 
of these impacts up to the present time have not impacted the 
resiliency, representation, or redundancy for each species or resulted 
in a decline in the overall distribution or general demographic 
condition of any of the three species such that they are in danger of 
extinction now throughout all of their ranges.
    In determining potential future threats facing the three species, 
we evaluated various climate change projections using downscaled data 
for interior northern California, which includes the ranges of the 
three species. Our timeframe for review looked out approximately 15, 
30, and 50 years based on the threat information identified below and 
climate change data. This was our timeframe for our threats analysis of 
future conditions for the three species to determine if they were 
likely to become endangered within the foreseeable future (i.e., if 
they meet the Act's definition of ``threatened species'') throughout 
all of their ranges.
    In our analysis of potential future conditions, we analyzed the 
future conditions related to vegetation management, future wildfire 
conditions, and projected climate change effects such as variability of 
precipitation events and timing, increased temperatures, reduced 
snowpack, and prolonged drought. We also identified the additional 
threat of the proposed action of raising Shasta Dam and the subsequent 
removal and inundation of habitat for the three species.
    We anticipate that vegetation management activities and wildfire 
will have a similar degree of impact into the future as they do 
currently, and that they will not result in impacts to the three 
species at a level such that they would meet the Act's definition of 
``threatened species.'' Although the potential raising of Shasta Dam 
would affect individuals and inundate or remove additional habitat for 
the three species, the extent of the potential loss of known detection 
sites and habitat areas that can support individuals is very limited 
relative to the overall number of detection sites and remaining 
available suitable habitat in each species' range.
    We expect that existing regulatory mechanisms and conservation 
measures will continue to help ameliorate or reduce impacts of threats 
to the species and will protect Shasta Complex salamanders and their 
habitats now and into the foreseeable future (50 years) such that their 
resiliency, representation, and redundancy will support their ability 
to sustain populations in the wild over time.
    We also reviewed whether there were any significant portions of the 
three species' ranges that may meet the definition of endangered or 
threatened. In our analysis, we did not find any portion of the Samwel, 
Shasta, or Wintu salamanders' ranges where the threats identified above 
are currently acting on the three species at a biologically meaningful 
scale such that the species may be endangered, or are likely to act on 
the species into the future such that they may be threatened. 
Therefore, no portion of the three species' ranges can provide a basis 
for determining that any one of the three species is in danger of 
extinction now or likely to become so in the foreseeable future in a 
significant portion of its range.

Finding

    Our review of the best available scientific and commercial 
information indicates that the Samwel salamander, Shasta salamander, 
and Wintu salamander do not meet the definition of an endangered 
species or a threatened species in accordance with sections 3(6) and 
3(20) of the Act. Therefore, we find that listing the Samwel 
salamander, Shasta salamander, and Wintu salamander as endangered or 
threatened species under the Act is not warranted at this time. A 
detailed discussion of the

[[Page 23872]]

basis for this finding can be found in the SSA (Service 2021a, entire) 
and species assessment form (Service 2021b, entire).

Request for New Information

    We request that you submit any new information concerning the 
taxonomy of, biology of, ecology of, status of, or threats to the 
Samwel salamander, Shasta salamander, or Wintu salamander to the Yreka 
Fish and Wildlife Office (see FOR FURTHER INFORMATION CONTACT), 
whenever it becomes available. New information will help us monitor 
these three species and make appropriate decisions about their 
conservation and status. We encourage Federal, State, and local 
agencies and stakeholders to continue cooperative monitoring and 
conservation efforts for the three species.

References Cited

    A list of the references cited in this petition finding is 
available on the internet at http://www.regulations.gov at Docket No. 
FWS-R8-ES-2021-0009 or upon request from the person specified under FOR 
FURTHER INFORMATION CONTACT.

Authors

    The primary authors of this document are the staff members of the 
Species Assessment Team, Ecological Services Program.

Authority

    The authority for this action is section 4 of the Endangered 
Species Act of 1973, as amended (16 U.S.C. 1531 et seq.).

Martha Williams,
Principal Deputy Director, Exercising the Delegated Authority of the 
Director, U.S. Fish and Wildlife Service.
[FR Doc. 2021-09489 Filed 5-4-21; 8:45 am]
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