98-8517. Endangered and Threatened Wildlife and Plants; Proposed Threatened Status for the Plant Rumex Orthoneurus (Chiricahua Dock)  

  • [Federal Register Volume 63, Number 62 (Wednesday, April 1, 1998)]
    [Proposed Rules]
    [Pages 15813-15820]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 98-8517]
    
    
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    DEPARTMENT OF THE INTERIOR
    
    Fish and Wildlife Service
    
    50 CFR Part 17
    
    RIN 1018-AE89
    
    
    Endangered and Threatened Wildlife and Plants; Proposed 
    Threatened Status for the Plant Rumex Orthoneurus (Chiricahua Dock)
    
    AGENCY: Fish and Wildlife Service, Interior.
    
    ACTION: Proposed rule.
    
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    SUMMARY: The U.S. Fish and Wildlife Service (Service) proposes to list 
    Rumex orthoneurus (commonly known as Chiricahua or Blumer's dock) as 
    threatened pursuant to the Endangered Species Act of 1973, as amended 
    (Act). This plant is a rare Southwest endemic occurring within riparian 
    and cienega (marshy wetland) habitats. The plant is known from the 
    Chiricahua, Pinaleno, Huachuca, Sierra Ancha, and White mountains in 
    Arizona. In New Mexico, the plant is known from the Mogollon and San 
    Francisco mountains. The plant is also believed to extend into northern 
    New Mexico in the Pecos Wilderness and to have been extirpated from the 
    Lincoln National Forest. A site in Mexico in the Sierra de los Ajos has 
    also been reported. Habitat loss and degradation due to livestock 
    grazing, recreation, water diversions and
    
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    development, road construction and maintenance, and wildfire imperil 
    the continued existence of this species. This proposal, if made final, 
    would extend the Act's protection to this plant. The Service seeks data 
    and comments from the public on this proposal.
    
    DATES: Comments from all interested parties must be received by July 
    30, 1998. Public hearing requests must be received by May 18, 1998.
    
    ADDRESSES: Comments and materials concerning this proposal should be 
    sent to the Field Supervisor, Arizona Ecological Services Field Office, 
    U.S. Fish and Wildlife Service, 2321 W. Royal Palm Rd., Suite 103, 
    Phoenix, Arizona 85021. Comments and materials received will be 
    available for public inspection, by appointment, during normal business 
    hours at the above address.
    
    FOR FURTHER INFORMATION CONTACT: Field Supervisor at the above address 
    or at telephone 602/640-2720 or facsimile 602/640-2730.
    
    SUPPLEMENTARY INFORMATION:
    
    Background
    
        Rumex orthoneurus occurs within higher elevation riparian and 
    wetland habitats in moist, loamy soils or shallowly inundated areas 
    (cienegas) adjacent to springs and streams. While most of the sites are 
    in open meadows or along streams with an open canopy, some sites are 
    shaded. The surrounding habitats are generally mixed conifer (Coronado 
    National Forest 1993). These adjacent plant communities primarily 
    include Douglas fir (Pseudotsuga menziesii), ponderosa pine (Pinus 
    pondersosa), big tooth maple (Acer grandidentatum), and white fir 
    (Abies concolor) (Van Devender 1980). The dominant species associated 
    with R. orthoneurus include sneeze weed (Helenium hoopesii), larkspur 
    (Delphinium andesicola), monkeyflower (Mimulus sp.) and various sedges 
    (Carex spp.) (Phillips et al. 1980).
        Rumex orthoneurus requires a wetland habitat (perennial streams and 
    springs and cienegas) that is rare in the desert southwest. The Arizona 
    Game and Fish Department (1993) estimated that riparian vegetation 
    associated with perennial streams comprises about 0.4 percent of the 
    total Arizona land area, with present riparian areas being remnants of 
    what once existed. Riparian and cienega habitats support many species 
    of limited distribution in the Southwest, and that distribution can 
    become increasingly restricted due to habitat degradation and loss 
    (Hendrickson and Minckley 1984).
        Habitat areas supporting Rumex orthoneurus are attractive to people 
    and livestock and, as a result, have been subjected to impacts from 
    recreation, water development and diversions, and concentrated 
    livestock grazing (Phillips et al. 1980; Van Devender 1980; Coronado 
    National Forest 1993; Tonto National Forest 1993; Sue Rutman, botanist, 
    in litt. 1995; David Hodges, Southwest Center for Biological Diversity 
    (SCBD), pers. comm. 1995; SCBD, petition, 1996).
        Rumex orthoneurus is an herbaceous, robust perennial within the 
    Polygonaceae (buckwheat family). Plants grow to 1 meter (m) (3.3 feet 
    (ft)) in height with inflorescence stalks up to 2 m (6.6 ft) in height 
    on more vigorous specimens. Large basal leaves are up to 50 centimeters 
    (cm) (19.7 inches (in)) long, 18 cm (7.1 in) wide, and oblong to 
    oblong-lanceolate in shape. Leaves located along the stem become 
    shorter and more narrow as they develop upwards. Characteristics 
    differentiating this plant from other members in its genus with which 
    it could be confused include rhizomes (creeping underground stems) as 
    opposed to taproots, lateral leaf veins almost perpendicular to the 
    middle vein of the leaf, and a lack of swellings on the midribs of the 
    fruiting capsules (Dawson 1979, Phillips et al. 1980, Coronado National 
    Forest 1993).
        Rumex orthoneurus was first described from a collection of Blumer's 
    by Rechinger (1936). The collection information noted the following--
    Chiricahua Mountains, Barfoot Park in a rolling andesitic pineland that 
    had been recently lumbered (Dawson 1979). This original type-locality 
    population was extirpated, possibly as a result of uncontrolled water 
    diversions in the 1980's (Coronado National Forest 1993). Plants at 
    this site were introduced from a different population in the Chiricahua 
    Mountains.
        Originally, plants now known from the White, Mogollon, and San 
    Francisco mountains were believed to be Rumex occidentalis. Several 
    recent taxonomic studies did not indicate otherwise; however, the 
    culmination of this work and the most recent research indicates that 
    plants in the White, Mogollon, and San Francisco mountains are, in 
    fact, R. orthoneurus (Mount and Logan 1993, Friar et al. 1994, Bellsey 
    and Mount 1995). Additionally, recent research indicates that R. 
    orthoneurus extends into northern New Mexico in the Pecos Wilderness 
    and once occurred on the Lincoln National Forest (Robert Bellsey, 
    University of Arizona, to Mima Falk, Coronado National Forest, pers. 
    comm. 1997).
        Rumex orthoneurus occurs at 10 sites in Arizona as natural (not 
    introduced) populations in the Chiricahua, Pinaleno, Huachuca, and 
    Sierra Ancha mountains. The extent of its occurrence in the White 
    Mountains of Arizona is being assessed. In the Mogollon and San 
    Francisco mountains on the Gila National Forest in the Gila Wilderness, 
    it is reported from the Willow and Silver Creek drainages, tributaries 
    of the Gila River, and from SA Creek (Bellsey and Mount 1995; Paul 
    Boucher, Gila National Forest, pers. comm. 1997). It is believed to 
    have been extirpated from three natural sites in Arizona.
        Extensive, poorly documented introductions of Rumex orthoneurus 
    occurred in the 1980s. Twenty-four introduced populations were 
    established as a result of this effort. Many are now extirpated or 
    believed unlikely to persist due to a number of factors, including 
    management conflicts such as grazing and recreation impacts and poor 
    site selection for the species' habitat needs (Coronado National Forest 
    1993, Tonto National Forest 1993). The Tonto National Forest (1993) 
    identified and designated 15 transplant sites as Priority III 
    populations expected to be extirpated within the next 50 years as a 
    result of the factors noted above. The Tonto National Forest now 
    considers six introduced populations to be extirpated (Stephen Gunzel, 
    District Ranger, in litt, 1998).
        The number of extant individuals in both natural and introduced 
    populations of Rumex orthoneurus is not known precisely and is 
    confounded by the species' form of asexual reproduction through 
    creeping rhizomes. However, overall, numbers have been declining as a 
    result of impacts from grazing, recreation, road construction and 
    maintenance, and wildfire (unpublished Service data 1990, Coronado 
    National Forest 1993, Tonto National Forest 1993). Comparisons over 
    time of populations occurring on the Tonto National Forest have also 
    been confounded by different counting and estimating methods (Charles 
    Bazan, Tonto National Forest, in litt. 1997).
        Specific site information for Rumex orthoneurus is limited 
    primarily to the sites in the Pinaleno, Chiricahua, Huachuca, and 
    Sierra Ancha mountains. This is the best scientific information 
    available and is the basis for the Service's knowledge that the species 
    is declining. An assessment of the other sites by the Forest Service is 
    presently underway and this information will be valuable in determining 
    further management needs for the species. For some documented impacts, 
    such as
    
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    grazing, immediate management actions to remove threats cannot be 
    implemented until the land management agencies have undertaken 
    appropriate administrative procedures.
        The remaining native Rumex orthoneurus population in the Chiricahua 
    Mountains occurs at Rustler Park and extends along East Turkey Creek. 
    The type locality at Barfoot Park was extirpated, and plants there now 
    were introduced. A site at Upper Cave Creek, not relocated since the 
    original report by S.B. Bingham in 1976, is presumed extirpated.
        In the Pinaleno Mountains, Rumex orthoneurus is known from Mount 
    Graham at Hospital Flat and Shannon Campground. Both of these natural 
    populations occur in heavily used public recreation areas (Coronado 
    National Forest 1993). The Coronado National Forest (1993) notes that 
    the Hospital Flat site is subject to impacts from regular road 
    maintenance activities.
        Only one natural population of Rumex orthoneurus remains in the 
    Huachuca Mountains; this site in Scheelite Canyon is under the 
    administration of the Ft. Huachuca Army Post. While this population is 
    subject to potential recreation impacts, the predominant threat is 
    wildfire (Jim Hessil, Ft. Huachuca, pers. comm. 1997). In 1882, J.G. 
    Lemmon collected R. orthoneurus from Ramsey Canyon in the Huachuca 
    Mountains; however, this population was extirpated at an unknown date, 
    possibly from activities associated with the Hamburg Mine (Van Devender 
    1980, unpublished Service data 1990). In 1990, R. orthoneurus was 
    reported from Pat Scott Canyon in the Huachuca Mountains; however, that 
    population has not been relocated (unpublished Service data 1990).
        Rumex orthoneurus was believed to have been extirpated from Rose 
    Creek in the Sierra Ancha Mountains; however, the Tonto National Forest 
    (1993) reports finding a small number of plants near a developed spring 
    at the campground located there. Previously, extensive road work and 
    sedimentation had rendered most of the available habitat unsuitable. 
    The other three natural populations in the Sierra Ancha Mountains are 
    at Reynolds Creek, Workman Creek, and Cold Springs Canyon.
        The success of introductions of populations of Rumex orthoneurus in 
    the Chiricahua, Huachuca, and Sierra Ancha mountains has been variable. 
    Some populations, such as those associated with the Cima Cabin in the 
    Chiricahua Mountains, appear likely to persist over time. Other 
    populations, in habitats which are marginal or unstable, are 
    experiencing management impacts, or have been irretrievably altered by 
    catastrophic wildfire, are already extirpated or believed unlikely to 
    persist over time. An up-to-date assessment of the introduced 
    populations on the Coronado and Tonto National Forests is needed to 
    fully determine the number of extant introductions remaining. Plants 
    occurring on the Gila National Forest are reportedly not subject to 
    grazing impacts (Paul Boucher, Gila National Forest, pers. comm. 1997).
        The Service seeks information regarding the status of Rumex 
    orthoneurus populations elsewhere in New Mexico and Mexico. Information 
    on the assumed extirpated population(s) on the Lincoln National Forest 
    and on the status of the reported occurrence in the Sierra de los Ajos 
    in Mexico is needed.
    
    Previous Federal Action
    
        Federal government actions on Rumex orthoneurus began as a result 
    of section 12 of the original Endangered Species Act of 1973 which 
    directed the Secretary of the Smithsonian Institution to prepare a 
    report on those plants considered to be endangered, threatened, or 
    extinct in the U.S. This report, designated as House Document No. 94-
    51, was presented to Congress on January 9, 1975, and included Rumex 
    orthoneurus as an endangered species. The Service published a notice on 
    July 1, 1975 (40 FR 27823) of its acceptance of the report of the 
    Smithsonian Institution as a petition within the context of section 
    4(c)(2)(petition provisions are now found in section 4(b)(3) of the 
    Act) and its intention thereby to review the status of the plant taxa 
    named therein. The July 1, 1975, notice included Rumex orthoneurus. On 
    June 16, 1976, the Service published a proposal (41 FR 24523) to 
    determine approximately 1,700 vascular plant species to be endangered 
    species pursuant to section 4 of the Act. The list of 1,700 plant taxa 
    was assembled on the basis of comments and data received by the 
    Smithsonian Institution and the Service in response to House Document 
    No. 94-51 and the July 1, 1975, Federal Register publication. Rumex 
    orthoneurus was included in the June 16, 1976, Federal Register 
    document. The 1978 amendments to the Endangered Species Act required 
    all proposals over 2 years old to be withdrawn, although a 1-year grace 
    period was given to those proposals already more than 2 years old. In 
    the December 10, 1979, Federal Register (44 FR 70796), the Service 
    published a notice of withdrawal for that portion of the June 16, 1976, 
    proposal that had not been made final.
        The Service published a Notice of Review for plants in the Federal 
    Register on December 15, 1980 (45 FR 82480). This notice listed the 
    status of Rumex orthoneurus as a Category 1 candidate. Category 1 
    candidates were taxa for which the Service had sufficient information 
    to support preparation of listing proposals. The species remained a 
    Category 1 candidate in subsequent Notices of Review published on 
    November 28, 1983 (48 FR 53640), September 27, 1985 (50 FR 39526), 
    February 21, 1990 (55 FR 6184), and September 30, 1993 (58 FR 51144).
        Beginning with the combined animal and plant Notice of Review 
    published on February 28, 1996 (61 FR 7596), the Service discontinued 
    the designation of multiple categories of candidates, and only species 
    for which the Service has sufficient information to warrant listing 
    proposals are now recognized as candidates. Rumex orthoneurus was 
    identified as a candidate in the February 28, 1996, notice and in the 
    next combined animal and plant notice published on September 19, 1997 
    (62 FR 49398). Development of a proposed rule to list R. orthoneurus 
    has been precluded by work on rules for species with a higher listing 
    priority.
        On May 7, 1996, the Service received a petition from 
    representatives of the Southwest Forest Alliance and the Southwest 
    Center for Biological Diversity requesting the Service to add Rumex 
    orthoneurus to the List of Threatened and Endangered Wildlife and 
    Plants. The petition also requested that critical habitat be designated 
    concurrent with the listing. A civil action was filed in the District 
    Court of Arizona on October 2, 1997, alleging the Service's failure to 
    make a 90-day finding. Under section 4(b)(3) of the Act, the addition 
    of a species to the candidate list and its maintenance on that list 
    constitute both a positive 90-day petition finding and a warranted but 
    precluded 12-month petition finding for that species. Because R. 
    orthoneurus was already a candidate species when the May 7, 1996, 
    petition was received, no additional petition findings were required, 
    except for annual findings pursuant to section 4(b)(3)(C) of the Act. 
    The need for further annual findings is obviated by this proposed rule.
        Processing of this proposed rule conforms with the Service's 
    Extension of Listing Priority Guidance for Fiscal Year 1997, published 
    on October 23, 1997 (62 FR 55268). The guidance clarifies the order in 
    which the Service will process rulemakings following two related 
    events--the lifting of the
    
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    moratorium on final listings imposed on April 10, 1995 (Public Law 104-
    6), and the restoration of significant funding for listing through 
    passage of the Omnibus Budget Reconciliation Law on April 26, 1996, 
    following severe funding constraints imposed by a number of continuing 
    resolutions between November 1995 and April 1996. The guidance calls 
    for giving highest priority to handling emergency situations (Tier 1); 
    second priority (Tier 2) to resolving the listing status of outstanding 
    proposed listings; third priority (Tier 3) to resolving the 
    conservation status of candidate species and processing 90-day or 12-
    month administrative findings on listing or reclassification petitions; 
    and fourth priority (Tier 4) to proposed or final critical habitat 
    designations and processing of reclassifications, which provide little 
    or no additional conservation benefit to listed species. This proposed 
    rule falls under Tier 3.
    
    Summary of Factors Affecting the Species
    
        Section 4 of the Endangered Species Act and regulations (50 CFR 
    part 424) promulgated to implement the listing provisions of the Act 
    set forth the procedures for adding species to the Federal lists. A 
    species may be determined to be an endangered or threatened species due 
    to one or more of the five factors described in section 4(a)(1). These 
    factors and their application to Rumex orthoneurus Rechinger 
    (Chiricahua dock) are as follows.
    
    A. The Present or Threatened Destruction, Modification, or Curtailment 
    of its Habitat or Range
    
        Riparian and cienega habitat degradation and loss has been ongoing 
    as a result of livestock grazing, recreation, water development and 
    diversion, road construction and maintenance, logging, mining and 
    associated activities, and wildfire. These activities have all 
    negatively affected habitat supporting Rumex orthoneurus populations. 
    Some populations have been extirpated as a result of the activities. 
    Some of the natural populations in the Chiricahua and Huachuca 
    mountains have been extirpated, possibly as a result of water 
    development and diversion, grazing, and mining activities. The site at 
    Rose Creek in the Sierra Ancha Mountains was believed to have been 
    extirpated by road construction; a small number of plants were later 
    found near a spring at the campground located there. One population in 
    the Pinalenos Mountains is regularly impacted by frequent road 
    maintenance.
        These activities which alter habitat supporting Rumex orthoneurus 
    continue to pose a threat. Much of this habitat modification is caused 
    by soil compaction due to recreational and grazing activities with the 
    result being a loss of suitable niches for seedling establishment, thus 
    threatening the range of this plant in the future. Many populations 
    occur in wetland areas subject to heavy public recreation. The Tonto 
    National Forest (1993) noted evidence of soil compaction and unstable 
    banks at the Workman Creek sites caused by recreational activities.
        The Coronado National Forest (1993) discussed the possible 
    extirpation of the type locality as a result of water diversions. 
    Trampling impacts to the population at Hospital Flat and impacts caused 
    by damming the creek where Rumex orthoneurus occurs have been observed 
    (David Hodges, Southwest Center for Biological Diversity, pers. comm. 
    1995). The Coronado National Forest (1993) has stated that recreational 
    impacts, such as trampling, are difficult to prevent in habitats used 
    by campers, hikers, and birdwatchers. The Tonto National Forest 
    receives the highest amount of recreational use of any National Forest 
    in the U.S. (Eddie Alford, Tonto National Forest, pers. comm. 1997).
        Grazing impacts Rumex orthoneurus at the system, population, and 
    individual plant levels. Rumex orthoneurus occurs in wetland habitats 
    attractive to livestock for forage, water, and shelter and is highly 
    palatable to livestock. Populations being grazed often do not produce 
    seeds. Continued grazing could eventually preclude the population's 
    continued existence due to a lack of seed production, compacted soils 
    discouraging seedling establishment, severe trampling of plants and 
    their creeping underground rhizomes, and destabilization of streambanks 
    resulting in habitat loss.
        Prior to a change in permittees which eliminated trespass grazing, 
    the Rumex orthoneurus population at Rustler Park in the Chiricahua 
    Mountains was adversely affected by grazing, with plants appearing 
    chlorotic, weak, and producing few inflorescences (Falk, Coronado 
    National Forest, pers. comm. 1997). Activities, including grazing, 
    which took place in the early 1900s in the vicinity of the historic 
    Hamburg Mine are believed to be factors causing the extirpation of the 
    population at Ramsey Canyon in the Huachuca Mountains (Van Devender 
    1980). Virtually all reported occurrences of R. orthoneurus on the 
    Apache-Sitgreaves National Forests are being adversely affected by 
    grazing activities (Apache-Sitgreaves National Forests, unpublished 
    data, 1997).
        Phillips et al. (1980) reported a proposed uranium mining and 
    milling operation as a threat to the Workman Creek population of Rumex 
    orthoneurus in the Sierra Ancha Mountains. A campsite was proposed to 
    be developed, and the bowl area of Carr Mountain (the watershed for the 
    site) was to be developed into a uranium mill. The Tonto National 
    Forest Assessment for R. orthoneurus (1993) calls for the removal of 
    mineral entry for this site; however, it is unknown if this has been 
    implemented for Workman Creek. The Tonto National Forest is presently 
    checking into the status of this mining operation and the potential for 
    future mining.
        Wildfire is also a threat to Rumex orthoneurus. The Dude Fire on 
    the Tonto National Forest, which resulted in increased stream 
    sedimentation and scouring, destroyed one introduced population and 
    rendered the habitat no longer suitable, and significantly reduced 
    available habitat at two other sites. The Bray Creek Fire on the Tonto 
    National Forest similarly reduced suitable habitat along Bray Creek 
    (Tonto National Forest 1993). The Bray Creek site is now considered 
    extirpated. The Rattlesnake Fire on the Coronado National Forest 
    resulted in a significant decline in the size and extent of one 
    population; recovery has been slow and limited to areas containing some 
    remaining suitable substrate. Much of the original creek is now filled 
    with huge boulders as a result of the catastrophic soil loss following 
    this fire.
    
    B. Overutilization for Commercial, Recreational, Scientific, or 
    Educational Purposes
    
        No use of this species for these purposes is known.
    
    C. Disease or Predation
    
        The primary predation threat to Rumex orthoneurus is from livestock 
    grazing due to its high palatability and occurrence in wetland habitats 
    attractive to livestock. It has been speculated that grazing impacts at 
    some sites have also been caused by deer (Phillips et al. 1980). 
    Separation of impacts caused by native wildlife versus livestock, or 
    the wildlife management changes in these wetland habitats has not been 
    assessed. Grazing by trespass cattle and horses has been a problem in 
    the recent past even in those sites protected by exclosures.
        While the trespass situation in the Chiricahua Mountains appears to 
    have been resolved within the last year after 8 years of problems, 
    permitted grazing
    
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    occurs at Rumex orthoneurus sites in the White Mountains on the Apache-
    Sitgreaves National Forests and at sites on the Tonto National Forest. 
    Grazing impacts on the site in the Pecos Wilderness are unknown. The 
    Gila Wilderness has not had permitted grazing since 1952 (Paul Boucher, 
    Gila National Forest, pers. comm. 1997). Grazing by cattle has not 
    occurred since 1947 on the R. orthoneurus sites in the Pinaleno 
    Mountains (Coronado National Forest 1993). Grazing impacts from horses 
    used by outfitter guides and recreationists has not been fully 
    evaluated for most sites.
    
    D. The Inadequacy of Existing Regulatory Mechanisms
    
        Many Federal and State laws and regulations can protect Rumex 
    orthoneurus and its habitat. However, Federal and State agency 
    discretion allowed under these laws still permits adverse effects on 
    listed and rare species. Adding R. orthoneurus to the list of 
    threatened species will help reduce adverse effects and will direct 
    Federal agencies to work towards its recovery.
        Rumex orthoneurus is not included in either of the Appendices of 
    the Convention on International Trade in Endangered Species of Wild 
    Fauna and Flora (CITES). It is unlikely it would require the trade 
    protections of CITES.
        The Federal Land Policy and Management Act of 1976 (43 U.S.C. 1701 
    et seq.) and National Forest Management Act of 1976 (16 U.S.C. 1600 et 
    seq.) direct Federal agencies to prepare programmatic-level management 
    plans to guide long-term resource management decisions. Forest plans 
    generally include a commitment to maintain viable populations of all 
    native wildlife, fish and plant species within the Forest's 
    jurisdiction (e.g. Coronado National Forest 1986). However, such 
    general commitments do not preclude adverse effects to rare species by 
    any National Forest.
        The Coronado and Tonto National Forests developed assessments with 
    management strategies for Rumex orthoneurus in 1993. To date, these 
    plans have not successfully eliminated adverse effects from grazing and 
    recreation. More successful implementation is now underway, although 
    some sites still need recreation management to more fully eliminate 
    threats. Assessment and management strategies have not been developed 
    for the sites at the other National Forests or the Ft. Huachuca Army 
    Post. All land management agencies with lands supporting this species 
    must address this plant in their fire management planning as wildfire, 
    with a resulting catastrophic loss of soil and habitat modification, 
    poses a threat to many populations.
        The National Environmental Policy Act of 1969 (NEPA) (42 U.S.C. 
    Sec. 4321-4370a) requires Federal agencies to consider the 
    environmental impacts of their actions. The NEPA requires Federal 
    agencies to describe a proposed action, consider alternatives, identify 
    and disclose potential environmental impacts of each alternative, and 
    involve the public in the decision-making process. It does not require 
    Federal agencies to select the alternative having the least significant 
    environmental impact. A Federal action agency may choose an action that 
    will adversely affect listed or candidate species provided these 
    effects were known and identified in a NEPA document.
        The wetland habitats supporting Rumex orthoneurus have a degree of 
    protection under section 404 of the Clean Water Act and under Federal 
    Executive Orders 11988 (Floodplain Management) and 11990 (Protection of 
    Wetlands). These laws and orders have not halted population decline, 
    extirpation, or habitat losses for R. orthoneurus.
        Under the Lacey Act (16 U.S.C. 3371 et seq.), as amended in 1982, 
    it is prohibited to import, export, sell, receive, acquire, purchase, 
    or engage in interstate or foreign commerce in any species taken, 
    possessed, or sold in violation of any law, treaty, or regulation of 
    the United States, any Tribal law, or any law or regulation of any 
    State. The Lacey Act can provide a degree of protection to Rumex 
    orthoneurus to the extent that the species is protected by Arizona 
    State law (described below) and to the extent the Lacey Act can be 
    enforced.
        The Arizona Native Plant Law (A.R.S. Chapter 7, Article 1) protects 
    Rumex orthoneurus as ``highly safeguarded.'' A permit from the Arizona 
    Department of Agriculture (ADA) must be obtained to legally collect 
    this species from public or private lands in Arizona. Permits may be 
    issued for scientific and educational purposes only. It is unlawful to 
    destroy, dig up, mutilate, collect, cut, harvest, or take any living 
    ``highly safeguarded'' native plant from private, State, or Federal 
    land without a permit. However, private landowners and Federal and 
    State public agencies may clear land and destroy habitat after giving 
    the ADA sufficient notice to allow plant salvage. Despite the 
    protections of the Arizona Native Plant Law, legal and illegal damage 
    and destruction of plants and habitat continue to occur.
    
    E. Other Natural or Manmade Factors Affecting Its Continued Existence
    
        Many of the populations of Rumex orthoneurus occur as small sites 
    in isolated mountain ranges. The loss of any of these populations 
    represents a significant curtailment of the species' range, and may 
    have negative effects on the species' ability to sustain itself over 
    time. As discussed previously, wildfire can pose a significant threat 
    to this species. Because of overgrazing and fire suppression, wildfire 
    can be catastrophic.
        The generally low numbers of individuals in mostly scattered, 
    isolated populations renders Rumex orthoneurus vulnerable to chance 
    extirpations and potential extinction. Small isolated populations have 
    an increased probability of extirpation (Wilcox and Murphy 1985). Once 
    populations are extirpated, natural recolonization of these isolated 
    habitats may not occur (Frankel and Soule 1981).
        The Service has carefully assessed the best scientific and 
    commercial information available regarding the past, present, and 
    future threats faced by this species in determining to propose this 
    rule. Based on this evaluation, the preferred action is to list Rumex 
    orthoneurus as threatened. This plant is threatened by habitat 
    degradation and loss caused by livestock grazing, water diversions and 
    development, recreation, wildfire, road construction and maintenance, 
    and direct predation by livestock. The species is also subject to an 
    increased risk of extinction due to the small number and sizes of 
    populations. While not in immediate danger of extinction, R. 
    orthoneurus is likely to become an endangered species in the 
    foreseeable future if the present threats and declines continue.
    
    Critical Habitat
    
        Critical habitat is defined in section 3 of the Act as--(i) The 
    specific areas within the geographical area occupied by a species, at 
    the time it is listed in accordance with the Act, on which are found 
    those physical or biological features (I) essential to the conservation 
    of the species and (II) that may require special management 
    consideration or protection and; (ii) specific areas outside the 
    geographical area occupied by a species at the time it is listed, upon 
    a determination that such areas are essential for conservation of the 
    species. ``Conservation'' means the use of all methods and procedures 
    needed to bring the species to the point at which listing under the Act 
    is no longer necessary.
    
    [[Page 15818]]
    
        Section 4(a)(3) of the Act, as amended, and implementing 
    regulations (50 CFR 424.12) require that, to the maximum extent prudent 
    and determinable, the Secretary designate critical habitat at the time 
    the species is determined to be endangered or threatened. Service 
    regulations (50 CFR 424.12(a)(1)) state that designation of critical 
    habitat is not prudent when one or both of the following situations 
    exist--(1) The species is threatened by taking or other human activity, 
    and identification of critical habitat can be expected to increase the 
    degree of threat to the species, or (2) such designation of critical 
    habitat would not be beneficial to the species. The Service finds that 
    designation of critical habitat is not prudent for Rumex orthoneurus 
    for the following reasons.
        All known populations of Rumex orthoneurus occur on Federal lands. 
    Some of these sites are small and discrete thus rendering them 
    vulnerable to vandalism of habitat and plants. Publication of precise 
    maps and descriptions of critical habitat in the Federal Register, as 
    required in a proposal of critical habitat, may make this plant 
    vulnerable to incidents of vandalism. Because designation of critical 
    habitat may increase the degree of threat to the species, such 
    designation is not prudent.
        In addition, critical habitat designation for Rumex orthoneurus is 
    not prudent due to lack of benefit. In the U.S., the species occurs 
    entirely on Federal lands; the U.S. Forest Service and Department of 
    the Army are aware of the locations of R. orthoneurus populations on 
    their lands and are either implementing conservation strategies or 
    developing them at this time. Therefore, informing these Federal 
    agencies of the locations of the species through designation of 
    critical habitat is unnecessary.
        Furthermore, because it is likely that an activity that would cause 
    adverse modification of critical habitat would also cause jeopardy to 
    Rumex orthoneurus, the designation of critical habitat would not likely 
    provide greater protection for this species or its habitat than that 
    provided by listing. Critical habitat receives consideration under 
    section 7 of the Act with regard to actions carried out, authorized, or 
    funded by a Federal agency (see Available Conservation Measures 
    section). As such, designation of critical habitat may affect 
    activities where such a Federal nexus exists. Under section 7 of the 
    Act, Federal agencies are required to ensure that their actions do not 
    jeopardize the continued existence of a species or result in 
    destruction or adverse modification of critical habitat. However, both 
    jeopardizing the continued existence of a species and adverse 
    modification of critical habitat have similar standards and thus 
    similar thresholds for violation of section 7 of the Act. In fact, 
    biological opinions that conclude that a Federal agency action is 
    likely to adversely modify critical habitat but not jeopardize the 
    species for which the critical habitat has been designated are 
    extremely rare. Because, in the U.S., R. orthoneurus occurs entirely on 
    Federal lands and because locations of populations of the species are 
    well known to the managers of these Federal lands, no adverse 
    modification of this habitat is likely to occur without consultation 
    under section 7 of the Act. Because of the small size of the species' 
    current range, any adverse modification of the species' critical 
    habitat would also likely jeopardize the species' continued existence. 
    Designation of critical habitat for R. orthoneurus, therefore, would 
    provide no additional benefit to the species beyond that conferred by 
    listing.
        Protection of the habitat of Rumex orthoneurus will be addressed 
    through the section 4 recovery process and the section 7 consultation 
    process. For the reasons discussed above, the Service finds that the 
    designation of critical habitat for R. orthoneurus is not prudent.
    
    Available Conservation Measures
    
        Conservation measures provided to species listed as endangered or 
    threatened under the Act include recognition, recovery actions, 
    requirements for Federal protection, and prohibitions against certain 
    practices. Recognition through listing encourages and results in 
    conservation actions by Federal, State, and private agencies, groups, 
    and individuals. The Act provides for possible land acquisition and 
    cooperation with the States and requires that recovery actions be 
    carried out for all listed species. The protection required of Federal 
    agencies and the prohibitions against certain activities involving 
    listed plants are discussed, in part, below.
        Section 7(a) of the Act, as amended, requires Federal agencies to 
    evaluate their actions with respect to any species that is proposed or 
    listed as endangered or threatened and with respect to its critical 
    habitat, if any is being designated. Regulations implementing this 
    interagency cooperation provision of the Act are codified at 50 CFR 
    part 402. Section 7(a)(4) requires Federal agencies to confer 
    informally with the Service 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. If a species is 
    listed subsequently, section 7(a)(2) requires Federal agencies to 
    ensure that activities they authorize, fund, or carry out are not 
    likely to jeopardize the continued existence of such a species or to 
    destroy or adversely modify its critical habitat. If a Federal action 
    may affect a listed species or its critical habitat, the responsible 
    Federal agency must enter into formal consultation with the Service.
        Rumex orthoneurus is known from the Coronado, Tonto, Apache-
    Sitgreaves, Gila, and Santa Fe National Forests and from the Ft. 
    Huachuca Army Post managed by the Department of Defense.
        Examples of Federal actions that may affect this plant include 
    recreation management, road construction, livestock grazing, water 
    diversions and developments, granting rights-of-way, and military 
    activities. These and other Federal actions would require section 7 
    consultation if the agency determines that the proposed action may 
    affect listed species.
        The Act and its implementing regulations set forth a series of 
    general prohibitions and exceptions that apply to all threatened 
    plants. All prohibitions of section 9(a)(2) of the Act, implemented by 
    50 CFR 17.71, apply. These prohibitions, in part, make it illegal for 
    any person subject to the jurisdiction of the U.S. to import or export, 
    transport in interstate or foreign commerce in the course of a 
    commercial activity, sell or offer for sale this species in interstate 
    or foreign commerce, or remove and reduce the species to possession 
    from areas under Federal jurisdiction. In addition, for endangered 
    plants, the 1988 amendments (Pub. L. 100-478) to the Act prohibit the 
    malicious damage or destruction on Federal lands and the removal, 
    cutting, digging up, or damaging or destroying such plants in knowing 
    violation of any State law or regulation, including State criminal 
    trespass law. Section 4(d) of the Act allows for the provision of such 
    protection to threatened species through regulation. This protection 
    may apply to this species in the future if regulations are promulgated. 
    Seeds from cultivated specimens of threatened plants are exempt from 
    these prohibitions provided that their containers are marked ``Of 
    Cultivated Origin.'' Certain exceptions apply to agents of the Service 
    and State conservation agencies.
        The Act and 50 CFR 17.72 also provide for the issuance of permits 
    to carry out otherwise prohibited activities involving threatened 
    species under
    
    [[Page 15819]]
    
    certain circumstances. Such permits are available for scientific 
    purposes and to enhance the propagation or survival of the species. For 
    threatened plants, permits are also available for botanical or 
    horticultural exhibition, educational purposes, or special purposes 
    consistent with the purposes of the Act. It is anticipated that few 
    permits for trade of Rumex orthoneurus would ever be sought or issued 
    because the species is not in cultivation or common in the wild. 
    Information collections associated with these permits are approved 
    under the Paperwork Reduction Act, 44 U.S.C. 3501 et seq., and assigned 
    Office of Management and Budget clearance number 1018-0094. For 
    additional information concerning these permits and associated 
    requirements, see 50 CFR 17.72 or contact the Office of Management 
    Authority, U.S. Fish and Wildlife Service, 4401 North Fairfax Drive, 
    Room 420C, Arlington, Virginia 22203-3507 (phone 703/358-2104, 
    facsimile 703/358-2281).
        It is the policy of the Service published in the Federal Register 
    on July 1, 1994 (59 FR 34272), to identify to the maximum extent 
    practicable those activities that would or would not constitute a 
    violation of section 9 of the Act if the species is listed. The intent 
    of this policy is to increase public awareness of the effect of a 
    species' listing on proposed and ongoing activities within the species' 
    range. Collection of listed species on Federal lands is prohibited, 
    although in appropriate cases a Federal endangered species permit may 
    be issued to allow collection. Actions funded, authorized, or 
    implemented by a Federal agency that could result in the removal and 
    reduction to possession of the species on Federal lands would not be a 
    violation of section 9 of the Act, provided they are conducted in 
    accordance with any reasonable and prudent measures required by the 
    Service under section 7 of the Act. The Service is not aware of any 
    otherwise lawful activities being conducted or proposed by the public 
    that would affect Rumex orthoneurus and result in a violation of 
    section 9. Questions regarding whether specific activities would 
    constitute a violation of section 9 should be directed to the Field 
    Supervisor of the Service's Arizona Ecological Services Field Office 
    (see ADDRESSES section).
    
    Public Comments Solicited
    
        The Service intends that any final action resulting from this 
    proposal will be as accurate and as effective as possible. Therefore, 
    comments or suggestions from the public, other concerned governmental 
    agencies, the scientific community, industry, or any other interested 
    party concerning this proposed rule are hereby solicited. Comments 
    particularly are sought concerning:
        (1) Biological, commercial trade, or other relevant data concerning 
    any threat (or lack thereof) to this species;
        (2) The location of any additional populations of this species and 
    the reasons why any habitat should or should not be determined to be 
    critical habitat as provided by section 4 of the Act;
        (3) Additional information concerning the range, distribution, and 
    population size of this species; and
        (4) Current or planned activities in the subject area and their 
    possible impacts on this species.
        Final promulgation of the regulation on this species will take into 
    consideration the comments and any additional information received by 
    the Service, and such communications may lead to a final regulation 
    that differs from this proposal.
        The Act provides for a public hearing on this proposal, if 
    requested. Requests must be received within 45 days of the date of 
    publication of the proposal. Such requests must be made in writing and 
    addressed to the Field Supervisor (see ADDRESSES section).
    
    National Environmental Policy Act
    
        The Fish and Wildlife Service has determined that an Environmental 
    Assessment, as defined under the authority of the National 
    Environmental Policy Act of 1969, need not be prepared in connection 
    with regulations adopted pursuant to section 4(a) of the Endangered 
    Species Act of 1973, as amended. A notice outlining the Service's 
    reasons for this determination was published in the Federal Register on 
    October 25, 1983 (48 FR 49244).
    
    Required Determinations
    
        This rule does not contain collections of information that require 
    approval by the Office of Management and Budget under 44 U.S.C. 3501 et 
    seq.
    
    References Cited
    
        A complete list of all references cited herein is available upon 
    request from the U.S. Fish and Wildlife Service, Arizona Ecological 
    Services Field Office (see ADDRESSES section).
    
    Author
    
        The primary author of this proposed rule is Angela Brooks, Arizona 
    Ecological Services Field Office (see ADDRESSES section).
    
    List of Subjects in 50 CFR Part 17
    
        Endangered and threatened species, Exports, Imports, Reporting and 
    recordkeeping requirements, Transportation.
    
    Proposed Regulation Promulgation
    
        Accordingly, the Service hereby proposes to amend part 17, 
    subchapter B of chapter I, title 50 of the Code of Federal Regulations, 
    as set forth below:
    
    PART 17--[AMENDED]
    
        1. The authority citation for part 17 continues to read as follows:
    
        Authority: 16 U.S.C. 1361-1407; 16 U.S.C. 1531-1544; 16 U.S.C. 
    4201-4245; Pub. L. 99-625, 100 Stat. 3500; unless otherwise noted.
    
        2. Amend section 17.12(h) by adding the following, in alphabetical 
    order under Flowering Plants, to the List of Endangered and Threatened 
    Plants:
    
    
    Sec. 17.12  Endangered and threatened plants.
    
    * * * * *
        (h) * * *
    
                                                                                                                                                            
    --------------------------------------------------------------------------------------------------------------------------------------------------------
                            Species                                                                                                                         
    --------------------------------------------------------    Historic range        Family name          Status      When listed    Critical     Special  
             Scientific name                Common name                                                                               habitat       rules   
    --------------------------------------------------------------------------------------------------------------------------------------------------------
    Flowering Plants                                                                                                                                        
                                                                                                                                                            
                       *                  *                  *                  *                  *                  *                  *                  
    Rumex orthoneurus................  Chiricahua dock.....  U.S.A. (AZ, NM),     Polygonaceae.......  T                                     NA           NA
                                                              Mexico.                                                                                       
                                                                                                                                                            
                       *                  *                  *                  *                  *                  *                  *                  
    --------------------------------------------------------------------------------------------------------------------------------------------------------
    
    
    [[Page 15820]]
    
        Dated: March 17, 1998.
    Jamie Rappaport Clark,
    Director, Fish and Wildlife Service.
    [FR Doc. 98-8517 Filed 3-31-98; 8:45 am]
    BILLING CODE 4310-55-P
    
    
    

Document Information

Published:
04/01/1998
Department:
Fish and Wildlife Service
Entry Type:
Proposed Rule
Action:
Proposed rule.
Document Number:
98-8517
Dates:
Comments from all interested parties must be received by July 30, 1998. Public hearing requests must be received by May 18, 1998.
Pages:
15813-15820 (8 pages)
RINs:
1018-AE89: Endangered and Threatened Species; Proposal To List as Endangered or Threatened Blumer's Dock
RIN Links:
https://www.federalregister.gov/regulations/1018-AE89/endangered-and-threatened-species-proposal-to-list-as-endangered-or-threatened-blumer-s-dock
PDF File:
98-8517.pdf
CFR: (2)
50 CFR 4321-4370a)
50 CFR 17.12