Federal Register, Volume 79 Issue 29 (Wednesday, February 12, 2014) 2014 Federal Register, 79 FR 8416-8428; Centralized Library: U.S. Fish and Wildlife Service -

[Federal Register Volume 79, Number 29 (Wednesday, February 12, 2014)]
[Proposed Rules]
[Pages 8416-8428]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: 2014-03133]

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DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service

50 CFR Part 17

[FWS-R1-ES-2013-0117; MO 92210-0-0008 B2]
RIN 1018-BA27

Endangered and Threatened Wildlife and Plants; Threatened Status
for Lepidium papilliferum (Slickspot Peppergrass) Throughout Its Range

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Reconsideration of final rule and request for comments.

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SUMMARY: We, the U.S. Fish and Wildlife Service (Service), amend and
update, and provide and request further information in regard to, our
October 8, 2009, final rule listing Lepidium papilliferum (slickspot
peppergrass) as a threatened species throughout its range under the
Endangered Species Act of 1973 (ESA or Act). We are addressing the
Idaho District Court's remand of our rule because the Court asked us to

[[Page 8417]]

reconsider the definition of the ``foreseeable future'' in regard to
this particular species. We announce the opening of a public comment
period seeking input on our interpretation of the foreseeable future as
it pertains specifically to L. papilliferum. We will also consider any
new information regarding population status, trends, or threats that
has become available since our last review of the status of the species
in 2009.

DATES: We will consider comments received or postmarked on or before
March 14, 2014. Please note that comments submitted electronically
using the Federal eRulemaking Portal (see ADDRESSES) must be received
by 11:59 p.m. Eastern Time on the closing date. Any comments that we
receive after the closing date may not be considered in the final
decision.

ADDRESSES: Comment submission: You may submit written comments by one
of the following methods:
(1) Electronically: Go to the Federal eRulemaking Portal: http://www.regulations.gov. Search for FWS-R1-ES-2013-0117, which is the
docket number for this rulemaking. You may submit a comment by clicking
on ``Comment Now!''
(2) By hard copy: Submit by U.S. mail or hand-delivery to: Public
Comments Processing, Attn: FWS-R1-ES-2013-0117; Division of Policy and
Directives Management; U.S. Fish and Wildlife Service; 4401 N. Fairfax
Drive, MS 2042-PDM; Arlington, VA 22203.
We request that you send comments only by the methods described
above. We will post all comments on http://www.regulations.gov. This
generally means that we will post any personal information you provide
us (see the Public Comments section below for more information).

FOR FURTHER INFORMATION CONTACT: Acting State Supervisor, U.S. Fish and
Wildlife Service, Idaho Fish and Wildlife Office, 1387 S. Vinnell Way,
Room 368, Boise, ID 83709; telephone 208-378-5243; facsimile 208-378-
5262. If you use a telecommunications device for the deaf (TDD), call
the Federal Information Relay Service (FIRS) at 1-800-877-8339.

SUPPLEMENTARY INFORMATION:

Executive Summary

Purpose of This Document

We are responding to the U.S. District Court for the District of
Idaho's August 8, 2012, Memorandum Decision and Order vacating our
October 8, 2009, final rule listing Lepidium papilliferum (slickspot
peppergrass) as a threatened species (74 FR 52014) (2009 final listing
rule) and remand of the rule to the Service for further consideration
consistent with the Court's decision. The Act defines an endangered
species as any species that is ``in danger of extinction throughout all
or a significant portion of its range'' and a threatened species as any
species ``that is likely to become endangered throughout all or a
significant portion of its range within the foreseeable future.'' The
Act does not define the term ``foreseeable future.'' With respect to
the Service's finding of threatened status for L. papilliferum, the
Court was supportive, stating that ``. . . the Service's finding
underlying the above conclusion [that L. papilliferum is likely to
become an endangered species within the foreseeable future] are (sic)
supported by the administrative record and entitled to deference.''
Otter v. Salazar, Case No. 1:11-cv-358-CWD, at 50 (D. Idaho, Aug. 8,
2012) (Otter v. Salazar). However, the Court took issue with the
Service's application of the concept of the ``foreseeable future'' in
the 2009 final listing rule. Although it found ``no problem with the
agency's science,'' the Court stated that ``without a viable definition
of foreseeable future, there can be no listing under the ESA.'' Otter
v. Salazar, at 55. Based on this conclusion, the Court vacated the 2009
listing determination and remanded it to the Secretary for further
consideration consistent with the Court's decision.
We are proposing to reinstate threatened status of Lepidium
papilliferum under the Act with an amended definition of the
foreseeable future, consistent with the Court's opinion and applied
specifically to this species. We will also evaluate any new scientific
information that may have become available since our 2009 final listing
rule. This will ensure that our present determination remains based on
the best scientific and commercial data available. We are seeking
public comments on our amended definition of foreseeable future and to
assist us in our evaluation of any new scientific information
pertaining to this species.

The Basis for Our Action

Public Comments

We will base any final action on the best scientific and commercial
data available. Therefore, we are seeking comments from the public,
other concerned governmental agencies, Native American tribes, the
scientific community, industry, or any other interested party
concerning the reinstatement of threatened status for Lepidium
papilliferum. We particularly seek comments concerning:
(1) Our interpretation of the term ``foreseeable future'' and its
application to our evaluation of the status of Lepidium papilliferum;
(2) Our evaluation of new scientific information concerning the
range, distribution, population size and trends, and threats to the
species that has become available since publication of the 2009 final
listing rule;
(3) Our choice of the threshold of 80 to 90 percent loss of
remaining unburned habitat as the point at which the species will be in
danger of extinction (see discussion below under Factors Affecting the
Species for details on our rationale supporting our conclusion);
(4) Any additional scientific information concerning the range,
distribution, population size and trends, or threats to the species
that has become available since publication of the 2009 final listing
rule that we have not already presented and considered here; and
(5) Current or planned activities in the subject area that were not
analyzed in the 2009 final listing rule and their possible effect on
this species.
We will consider all comments and information received during the
comment period on this rulemaking during our preparation of a final
determination. Comments previously submitted on the proposed listing of
Lepidium papilliferum need not be resubmitted; they have already been
incorporated into the public record and will be fully considered in the
final decision.
Please note that submissions merely stating support for or
opposition to the action under consideration without providing
supporting information,

[[Page 8418]]

although noted, will not be considered in making a determination, as
section 4(b)(1)(A) of the Act directs that determinations as to whether
any species is an endangered or threatened species must be made
''solely on the basis of the best scientific and commercial data
available.''
You may submit your comments and materials by one of the methods
listed in ADDRESSES. We request that you send comments only by the
methods described in ADDRESSES.
If you submit information via http://www.regulations.gov, your
entire submission--including any personal identifying information--will
be posted on the Web site. If your submission is made via a hardcopy
that includes personal identifying information, you may request at the
top of your document that we withhold this information from public
review. However, we cannot guarantee that we will be able to do so. We
will post all hardcopy submissions on http://www.regulations.gov.
Please include sufficient information with your comments to allow us to
verify any scientific or commercial information you include.
In making a final decision on this matter, we will take into
consideration the comments and any additional information we receive.
Comments and materials received, as well as some of the supporting
documentation used in the preparation of a final decision, will be
available for public inspection on http://www.regulations.gov. All
information we use in making our decision is available by appointment,
during normal business hours, at the U.S. Fish and Wildlife Service,
Idaho Fish and Wildlife Office, 1387 S. Vinnell Way, Room 368, Boise,
ID 83709; telephone 208-378-5243; facsimile 208-378-5262 (see FOR
FURTHER INFORMATION CONTACT).

Previous Federal Actions

On July 15, 2002, we proposed to list Lepidium papilliferum as an
endangered species (67 FR 46441). On January 12, 2007, we published a
document in the Federal Register withdrawing the proposed rule (72 FR
1622), based on a determination at that time that listing was not
warranted (for a description of Federal actions concerning L.
papilliferum between the 2002 proposal to list and the 2007 withdrawal,
please refer to the 2007 withdrawal document). On April 6, 2007,
Western Watersheds Project filed a lawsuit challenging our decision to
withdraw the proposed rule to list L. papilliferum. On June 4, 2008,
the U.S. District Court for the District of Idaho (Court) reversed the
decision to withdraw the proposed rule, with directions that the case
be remanded to the Service for further consideration consistent with
the Court's opinion (Western Watersheds Project v. Kempthorne, Case No.
CV 07-161-E-MHW (D. Idaho)).
After issuance of the Court's remand order, we published a public
notification of the reinstatement of our July 15, 2002, proposed rule
to list Lepidium papilliferum as an endangered species and announced
the reopening of a public comment period on September 19, 2008 (73 FR
54345). To ensure that our review of the species' status was based on
complete information, we announced another reopening of the comment
period on March 17, 2009 (74 FR 11342). On October 8, 2009, we
published a final rule (74 FR 52014) listing L. papilliferum as a
threatened species throughout its range.
On November 16, 2009, Idaho Governor C. L. ``Butch'' Otter, the
Idaho Office of Species Conservation, Theodore Hoffman, Scott
Nicholson, and L.G. Davison & Sons, Inc., filed a complaint in the U.S.
District Court for the District of Columbia challenging the 2009 final
listing rule under the Administrative Procedure Act and the Endangered
Species Act. Subsequently, the issue was transferred to the U.S.
District Court for the District Court of Idaho (Court), and the parties
involved consented to proceed before a Magistrate Judge. On August 8,
2012, the Court vacated the final rule listing Lepidium papilliferum as
a threatened species under the Act, with directions that the case be
remanded to the Service for further consideration consistent with the
Court's opinion. Otter v. Salazar, Case No. 1:11-cv-358-CWD (D. Idaho).
This document constitutes our reconsideration of the issue remanded by
the Court.

Background and New Information

A complete description of Lepidium papilliferum, including a
discussion of its life history, ecology, habitat requirements and
monitoring of extant populations, can be found in the October 8, 2009,
final rule (74 FR 52014). However, to ensure that we are considering
the best scientific and commercial data available in our final
decision, here we present new scientific information that has become
available to us since our 2009 determination of threatened status, and
evaluate that new information in light of our previous conclusions
regarding the status of the species.

New Information Related to the Proposed Listing of Lepidium
papilliferum

We are evaluating information presented in the 2009 final listing
rule, as well as new information, regarding population status, trends,
or threats that has become available since 2009, including current
element occurrence (EO) data provided to us by the Idaho Fish and
Wildlife Information System (IFWIS) database (formerly the Idaho
Natural Heritage Program database), updated fire history data, the new
rangewide Habitat Integrity and Population (HIP) monitoring data,
information on current developments being proposed within the range of
L. papilliferum, and the most current data on seed predation by Owyhee
harvester ants (Pogonomyrmex salinus), as described in the Factors
Affecting the Species section, below.
Relatively limited new data regarding population abundance or
trends has become available since our 2009 final listing rule. In 2011
and 2012, the total number of Lepidium papilliferum plants counted was
the lowest since 2005, when complete counts for this species were
initiated, with 16,462 plants in 2011 and 9,202 plants in 2012 (Kinter
2012, in litt.). Previously, the lowest total number of plants counted
occurred in 2006, with 17,543 plants, and the highest count was in
2010, with 58,921 plants (IDFG 2012, p. 5). Meyer et al. (2005, p. 21)
suggest that L. papilliferum relies on years with extremely favorable
climactic elements to resupply the seed bank (i.e., high bloom years
with good weather), and during unfavorable years, it is dependent upon
a persistent seed bank to maintain the population.
In 2009, there were 80 extant Lepidium papilliferum EOs documented
according to IFWIS data. Survey efforts over the past few years have
located additional L. papilliferum occupied sites. According to IFWIS
data, existing EOs have been expanded (and in some cases merged with
other EOs to meet the definition of an EO, by grouping occupied
slickspots that occur within 1 kilometer (km) (0.6 miles (mi)) of each
other), and eight new EOs have been located. According to the most
recent IFWIS data, there are now 87 extant L. papilliferum EOs
(although it would seem there should be 88, the apparent discrepancy in
numbers is due to the intervening merging and deleting of EOs between
2009 and the present, as documented in the record). The discovery of
some new occupied sites is not unexpected given not all potential L.
papilliferum habitats in southwest Idaho have been surveyed. While the

[[Page 8419]]

discovery of these new sites is encouraging, they are located near or
in the vicinity of existing EOs, and therefore do not expand the known
range of the species; they are all subject to the same threats
affecting the species, and their associated ranks indicate they are not
high-quality EOs. The existing EOs have not been re-ranked since 2005;
however, the ranks given to the new EOs include one BC, one BD, three
C, two CD, and one D (IFWIS data from January 2013). See the Monitoring
of Lepidium papilliferum Populations section in the 2009 final listing
rule for a more detailed discussion of EOs.
As discussed below in the section Factors Affecting the Species,
the new information generally supports our 2009 conclusions on the
present distribution of Lepidium papilliferum, its status and
population trends, and how the various threat factors are affecting the
species.

Foreseeable Future

As indicated earlier, the Act defines a ``threatened species'' as
any species (or subspecies or, for vertebrates, distinct population
segments) that is likely to become an endangered species within the
foreseeable future throughout all or a significant portion of its
range. The Act does not define the term ``foreseeable future.'' In a
general sense, the foreseeable future is the period of time over which
events can reasonably be anticipated; in the context of the definition
of ``threatened species,'' the Service interprets the foreseeable
future as the extent of time over which the Secretary can reasonably
rely on predictions about the future in making determinations about the
future conservation status of the species. It is important to note that
references to ``reliable predictions'' are not meant to refer to
reliability in a statistical sense of confidence or significance;
rather the words ``rely'' and ``reliable'' are intended to be used
according to their common, non-technical meanings in ordinary usage. In
other words, we consider a prediction to be reliable if it is
reasonable to depend upon it in making decisions, and if that
prediction does not extend past the support of scientific data or
reason so as to venture into the realm of speculation.
In considering threats to the species and whether they rise to the
level such that listing the species as a threatened or endangered
species is warranted, we assess factors such as the imminence of the
threat (is it currently affecting the species or, if not, when do we
expect the effect from the threat to commence, and whether it is
reasonable to expect the threat to continue into the future), the scope
or extent of the threat, the severity of the threat, and the
synergistic effects of all threats combined. If we determine that the
species is not currently in danger of extinction, then we must
determine whether, based upon the nature of the threats, it is
reasonable to anticipate that the species may become in danger of
extinction within the foreseeable future. As noted in the 2009
Department of the Interior Solicitor's opinion on foreseeable future,
``in some cases, quantifying the foreseeable future in terms of years
may add rigor and transparency to the Secretary's analysis if such
information is available. Such definitive quantification, however, is
rarely possible and not required for a foreseeable future analysis''
(M-37021, January 16, 2009; p. 9).
In some specific cases where extensive data were available to allow
for the modeling of extinction probability over various time periods
(e.g., Greater Sage-grouse (75 FR 13910; March 23, 2010), the Service
has provided quantitative estimates of what may be considered to
constitute the foreseeable future. We do not have such data available
for Lepidium papilliferum. Therefore, our analysis of the foreseeable
future for the purposes of assessing the status of L. papilliferum must
rely on the foreseeability of the relevant threats to the species over
time, as described by the Solicitor's opinion (M-37021, January 16,
2009; p. 8). The foreseeable future extends only so far as the
Secretary can explain reliance on the data to formulate a reliable
prediction, based on the extent or nature of the data currently
available, and to extrapolate any trend beyond that point would
constitute speculation.
In earlier evaluations of the status of Lepidium papilliferum, the
Service assembled panels of species and ecosystem experts to assist in
our review through a structured decision-making process. As part of
those evaluations, to help inform the decisions to be made by the
Service managers, experts were asked to provide their best estimate of
a timeframe for extinction of L. papilliferum, and were allowed to
distribute points between various predetermined time categories, or to
assign an extinction probability of low, medium, or high between time
categories (e.g., 1 to 20 years, 21 to 40 years, 41 to 60 years, 61 to
80 years, 81 to 100 years, 101 to 200 years, and 200 years and beyond).
We note that this type of exercise was not intended to provide a
precise quantitative estimate of the foreseeable future, nor was it
meant to provide the definitive answer as to whether L. papilliferum is
likely to become an endangered species within the foreseeable future.
Rather, this type of exercise is used to help inform Service decision-
makers, and ultimately the Secretary, as to whether there is broad
agreement amongst the experts as to extinction probability within a
certain timeframe.
In fact, the species experts expressed widely divergent opinions on
extinction probabilities over various timeframes. As an example, in
2006, the estimated timeframes for extinction from seven different
panel members fell into every time category presented ranging from 21
to 40 years up to 101 to 200 years. Because the species experts'
divergent predictions were based on ``reasonable, best educated
guesses,'' we did not consider the range of timeframes to represent a
prediction that can be reasonably relied upon to make a listing
determination. As noted in the Solicitor's opinion, ``the mere fact
that someone has made a prediction concerning the future does not mean
that the thing predicted is foreseeable for the purpose of making a
listing determination under section 4 of the ESA'' (M-37021, January
16, 2009; p. 10).
In our 2009 final listing rule, we did not present species experts
with predetermined potential timeframes within which to estimate
extinction probability for the species. Rather, we asked peer reviewers
to provide us with their estimated projection of a time period for
reliably predicting threat effects or extinction risk for the species.
In response, most peer reviewers declined, stating that such future
projections were likely speculative. One peer reviewer suggested that
given current trends in habitat loss and degradation, L. papilliferum
``is likely at a tipping point in terms of its prospect for survival,''
and doubted that the species would persist in sustainable numbers
beyond the next 50 to 75 years (74 FR 52055).
As suggested in the Solicitor's opinion, for the purposes of the
present analysis, we are relying on an evaluation of the foreseeability
of threats and the foreseeability of the effect of the threats on the
species, extending this time period out only so far as we can rely on
the data to formulate reliable predictions about the status of the
species, and not extending so far as to venture into the realm of
speculation. Therefore, in the case of Lepidium papilliferum, we
conclude that the foreseeable future is that period of time within
which we can reliably predict whether or not Lepidium papilliferum is
likely to become an endangered species as a result of the effects of
wildfire, invasive nonnative

[[Page 8420]]

plants, and other threats to the species. As explained below, with
respect to the principal threat factors, the foreseeable future for
Lepidium papilliferum is at least 50 years.

Factors Affecting the Species

Section 4 of the Act and its implementing regulations (50 CFR 424)
set forth the procedures for adding species to the Federal Lists of
Endangered and Threatened Wildlife and Plants. 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) of the Act: (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. Listing actions may
be warranted based on any of the above threat factors, singly or in
combination.
A detailed discussion and analysis of each of the threat factors
for Lepidium papilliferum can be found in the final listing rule. For
the purpose of this document, we are limiting our discussion of
foreseeable future to the threats we consider significant in terms of
contributing to the present or threatened destruction, modification, or
curtailment of L. papilliferum's habitat or range. These include the
two primary threat factors: altered wildfire regime (increasing
frequency, size, and duration of wildfires), and invasive, nonnative
plant species (e.g., Bromus tectorum (cheatgrass)); as well as
contributing threat factors of planned or proposed development, habitat
fragmentation and isolation, and the emerging threat from seed
predation by Owyhee harvester ants (Pogonomyrmex salinus). Here we
present a brief summary of each of the primary threats to L.
papilliferum for the purposes of considering new information received
since 2009 and of analyzing these threats in the context of the
foreseeable future, in order to reconsider whether L. papilliferum
meets the definition of a threatened species.
In considering potential threatened species status for Lepidium
papilliferum, it is useful to first describe what endangered species
status (in danger of extinction throughout all or a significant portion
of its range) for L. papilliferum would be. Lepidium papilliferum will
be in danger of extinction (an endangered species) when the anticipated
and continued synergistic effects of increased wildfire, invasive
nonnative plants, development, and other known threats affect the
remaining extant L. papilliferum habitats at a level where the species
would persist only in a small number of isolated EOs, most likely with
small populations and fragmented from other extant populations.
Wildfire usually results in a mosaic of burned and unburned areas, and
while some EOs may persist for a time in unburned habitat ``islands''
within burned areas, the resulting habitat fragmentation will cause any
such EOs to be subject to a high degree of vulnerability, such that
they may not have long-term viability. For example, wildfire often
leads to a type conversion from native sagebrush-steppe to annual
grassland, in which the habitat goes through successional changes
resulting in grasslands dominated by invasive nonnative grasses, rather
than the slickspot habitat needed by L. papilliferum. Therefore,
although a few individuals of the species may continue to be found in
burned areas, those individuals would be subject to the full impact of
the threats acting on the species, and thus be highly vulnerable to
extirpation, as detailed in the Summary of Factors Affecting the
Species, below. In order to estimate when this might occur, we chose a
threshold of 80 to 90 percent loss of or damage to the currently
remaining unburned habitat (we are seeking public comment on the
appropriateness of this choice of threshold). Should this loss of 80 to
90 percent of current habitat happen, we believe that the remaining 10
to 20 percent of its present habitat would be so highly fragmented that
it would detrimentally affect successful insect pollination and genetic
exchange, leading to a reduction in genetic fitness and genetic
diversity, and a reduced ability to adapt to a changing environment.
There would be little probability of recolonization of formerly
occupied sites at this point, and remaining small, isolated populations
would be highly vulnerable to local extirpation from a variety of
threats. In addition, smaller, more isolated EOs could also exacerbate
the threat of seed predation by Owyhee harvester ants, as small,
isolated populations deprived of recruitment through their seed bank
due to seed predation would be highly vulnerable to relatively rapid
extirpation. All of these effects are further magnified by the
consideration that L. papilliferum is a relatively local endemic, and
presently persists in specialized microhabitats that have already been
greatly reduced in extent (more than 50 percent of known L.
papilliferum EOs have already been affected by wildfire). Therefore, if
L. papilliferum should reach this point at which a further 80 to 90
percent of its present remaining habitat is severely impacted by the
effects of wildfire, invasive nonnative plants, and other threats, we
predict it would then be in danger of extinction.
We have analyzed and assessed known threats impacting Lepidium
papilliferum, and used the best available information to carefully
consider what effects these known threats will have on this species in
the future, and over what timeframe, in order to determine what
constitutes the foreseeable future for each of these known threats. In
considering the foreseeable future as it relates to these threats, we
considered information presented in the 2009 final listing rule, and
information we have obtained since the publication of that rule,
including: (1) The historical data to identify any relevant existing
trends that might allow for reliable prediction of the future; (2) any
information that suggests these threats may be alleviated in the near
term; and (3) how far into the future we can reliably predict that
these threats will continue to affect the status of the species,
recognizing that our ability to make reliable predictions into the
future is limited by the quantity and quality of available data. Below,
we provide a summary of our analysis of each known threat, and discuss
the information regarding the timing of these threats on which we base
our conclusions regarding the application of the foreseeable future.

Altered Wildfire Regime

The current altered wildfire regime and invasive, nonnative plant
species were cited in the final listing rule as the primary cause for
the decline of Lepidium papilliferum. The invasion of nonnative plant
species, particularly annual grasses such as Bromus tectorum and
Taeniatherum caput-medusae (medusahead), has contributed to increasing
the amount and continuity of fine fuels across the landscape, and as a
result, the wildfire frequency interval has been shortened from between
60 to 110 years historically to less than 5 years in many areas of the
sagebrush-steppe ecosystem at present (Wright and Bailey 1982, p. 158;
Billings 1990, pp. 307-308; Whisenant 1990, p. 4; USGS 1999, in litt.,
pp. 1-9; West and Young 2000, p. 262). These wildfires tend to be
larger and burn more uniformly than those that occurred historically,
resulting in fewer patches of unburned vegetation, which can affect the
post-fire recovery of native sagebrush-steppe

[[Page 8421]]

vegetation (Whisenant 1990, p. 4). The result of this altered wildfire
regime has been the conversion of vast areas of the former sagebrush-
steppe ecosystem to nonnative annual grasslands (USGS 1999, in litt.,
pp. 1-9). Frequent wildfires can also promote soil erosion and
sedimentation (Bunting et al. 2003, p. 82) in arid environments such as
the sagebrush-steppe ecosystem. Increased sedimentation can result in a
silt layer that is too thick for optimal L. papilliferum germination
(Meyer and Allen 2005, pp. 6-7). Wildfire also damages biological soil
crusts, which are important to the sagebrush-steppe ecosystem and
slickspots where L. papilliferum occur, because the soil crusts
stabilize and protect soil surfaces from wind and water erosion, retain
soil moisture, discourage annual weed growth, and fix atmospheric
nitrogen (Eldridge and Greene 1994 as cited in Belnap et al. 2001, p.
4; Johnston 1997, pp. 8-10; Brooks and Pyke 2001, p. 4).
Several researchers have noted signs of increased habitat
degradation for Lepidium papilliferum, most notably in terms of exotic
species cover and wildfire frequency (e.g., Moseley 1994, p. 23; Menke
and Kaye 2006, p. 19; Colket 2008, pp. 33-34), but only recently have
analyses demonstrated a statistically significant, negative
relationship between the degradation of habitat quality, both within
slickspot microsites and in the surrounding sagebrush-steppe matrix,
and the abundance of L. papilliferum. Sullivan and Nations (2009, pp.
114-118, 137) found a consistent, statistically significant, negative
correlation between wildfire and the abundance of L. papilliferum
across its range. Their analysis of 5 years of Habitat Integrity and
Population (HIP) monitoring data indicated that L. papilliferum
``abundance was lower within those slickspot [sic] that had previously
burned'' (Sullivan and Nations 2009, p. 137), and the relationship
between L. papilliferum abundance and fire is reported as ``relatively
large and statistically significant,'' regardless of the age of the
fire or the number of past fires (Sullivan and Nations 2009, p. 118).
The nature of this relationship was not affected by the number of fires
that may have occurred in the past; whether only one fire had occurred
or several, the association with decreased abundance of L. papilliferum
was similar (Sullivan and Nations 2009, p. 118).
The evidence also points to an increase in the geographic extent of
wildfire within the range of Lepidium papilliferum. Since the 1980s, 53
percent of the total L. papilliferum management area acreage rangewide
has burned, more than double the acreage burned in the preceding three
decades (from the 1950s through 1970s) (Hardy 2013, in litt.).
Management areas are units containing multiple EOs in a particular
geographic area with similar land management issues or administrative
boundaries as defined in the 2003 Candidate Conservation Agreement
(State of Idaho 2006, p. 9). Based on available information,
approximately 11 percent of the total management area burned in the
1950s; 1 percent in the 1960s; 15 percent in the 1970s; 26 percent in
the 1980s; 34 percent in the 1990s; and as of 2007, 11 percent in the
2000s (data based on GIS fire data provided by BLM Boise and Twin Falls
District; I. Ross 2008, pers. comm. and A. Webb 2008, pers. comm., as
cited in Colket 2008, p. 33). Incorporating more recent data (fire data
up to 2012), 12 percent of the total management area burned from 2000
to 2009, with 1 percent burning from 2010 to 2012 (Hardy 2013, in
litt.). Based on the negative relationship observed between fire, L.
papilliferum, and habitat quality as described above, we conclude that
this increase in area burned translates into an increase in the number
of L. papilliferum populations subjected to the negative effects of
wildfire.
More specifically, an evaluation of Lepidium papilliferum EOs for
which habitat information has been documented (79 of 80 EOs)
demonstrates that most have experienced the effects of fire. Fifty-five
of 79 EOs have been at least partially burned (14 of 16 EOs on the
Boise Foothills, 30 of 42 EOs on the Snake River Plain and 11 of 21 EOs
on the Owyhee Plateau), and 75 EOs have adjacent landscapes that have
at least partially burned (16 of 16 EOs on the Boise Foothills, 39 of
42 EOs on the Snake River Plain, and 20 of 21 EOs on the Owyhee
Plateau) (Cole 2009, Threats Table).
In the 2009 final listing rule, we presented a geospatial data
analysis that evaluated the total Lepidium papilliferum EO area
affected by wildfire over 50 years (from 1957 to 2007). This analysis
found that the perimeter of previous wildfires had encompassed
approximately 11,442 ac (4,509 ha) of the total L. papilliferum EO area
rangewide (Stoner 2009, p. 48). However, in this analysis, areas that
burned twice were counted twice. When we eliminate reoccurring fires
and reanalyzed the data to account only for how much area burned at
least once, we find that the perimeter of wildfires that had occurred
over the same time period (1957-2007) encompassed approximately 7,475
ac (3,025 ha), or 47 percent of the total L. papilliferum EO area
rangewide (Hardy 2013, in litt.). At the time of the 2009 final listing
rule (74 FR 52014; October 8, 2009), the total area of known EOs was
estimated to be approximately 16,000 ac (6,500 ha) (this area reflects
only the immediate known locations of individuals of L. papilliferum as
recognized in the IFWIS database, and does not represent the much
larger geographic range of the species).
Since the 2009 listing, wildfires have continued to affect Lepidium
papilliferum EOs and the surrounding habitat. Data collected over the
past 5 years (from 2008 to 2012) indicates that there were 15
additional fires that burned approximately 1,190 ac (482 ha) of L.
papilliferum EOs, with approximately 850 ac (340 ha) located in areas
that had not previously burned (Hardy 2013, in litt.). Using new fire
information since 2009, and considering only impacts to new, previously
unburned areas, we updated the geospatial analysis and found that over
the past 55 years (1957-2012) the perimeters of 126 wildfires occurring
within the known range of L. papilliferum have burned approximately
8,324 ac (3,369 ha), or 53 percent of the total L. papilliferum EO area
rangewide (Hardy 2013, in litt.).
We recognize that caution should be used in interpreting geospatial
information as it represents relatively coarse vegetation information
that may not reflect that some EOs may be located within remnant
unburned islands of sagebrush habitat within fire perimeters. However,
it is the best available information and provides additional cumulative
evidence that increased wildfire frequency is ongoing and, as detailed
in the 2009 final listing rule, is likely facilitating the continued
spread of invasive plant species and Owyhee harvester ant colony
expansion, all of which continue to negatively affect Lepidium
papilliferum and its habitat.
In addition to the geospatial information, a review of the
rangewide HIP transect data for evidence of fire history revealed that,
of the 80 transects, 5 transects (6.25 percent) had partially burned
(with approximately half of the area unburned), 13 (16.25 percent) were
predominantly burned, and 18 (22.5 percent) had completely burned
(Colket 2009, Table 5). Of the remaining 44 transects, 38 (48 percent)
showed no effects from wildfire and 6 others (7.5 percent) were
predominantly unburned.
Climate change models also project a likely increase in wildfire
frequency within the semiarid Great Basin region

[[Page 8422]]

inhabited by Lepidium papilliferum. Arid regions such as the Great
Basin where L. papilliferum occurs are likely to become hotter and
drier; fire frequency is expected to accelerate, and fires may become
larger and more severe (Brown et al. 2004, pp. 382-383; Neilson et al.
2005, p. 150; Chambers and Pellant 2008, p. 31; Karl et al. 2009, p.
83). Under projected future temperature conditions, the cover of
sagebrush in the Great Basin region is anticipated to be dramatically
reduced (Neilson et al. 2005, p. 154). Warmer temperatures and greater
concentrations of atmospheric carbon dioxide create conditions
favorable to Bromus tectorum, thus continuing the positive feedback
cycle between the invasive annual grass and fire frequency that poses a
threat that is having a significant effect on L. papilliferum (Chambers
and Pellant 2008, p. 32; Karl et al. 2009, p. 83). Under current
climate-change projections, we anticipate that future climatic
conditions will favor further invasion by B. tectorum, that fire
frequency will continue to increase, and the extent and severity of
fires may increase as well. If current projections are realized, the
consequences of climate change are, therefore, likely to exacerbate the
existing primary threats to L. papilliferum of frequent wildfire and
invasive nonnative plants, particularly B. tectorum. As the
Intergovernmental Panel on Climate Change (IPCC) projects that the
changes to the global climate system in the 21st century will likely be
greater than those observed in the 20th century (IPCC 2007, p. 45), we
anticipate that these effects will continue and likely increase in the
future. See Climate Change under Factor E, in the 2009 final listing
rule for a more detailed discussion of climate change.
To determine the rate at which wildfire is impacting L.
papilliferum habitats and how far into the future we can reasonably
predict the likely effects of wildfire on the species, we assessed the
available data regarding the extent of L. papilliferum habitat that is
likely to burn each year. As reported above, over the past 55 years
(1957 to 2012), the perimeters of 126 wildfires occurring within the
known range of L. papilliferum have burned approximately 8,324 ac
(3,369 ha), or 53 percent of the total L. papilliferum EO area
rangewide (Hardy 2013, in litt.). Thus the annual mean habitat impact
due to wildfire over the past 55 years is estimated at 150 acres per
year (ac/yr) (61 hectares per year (ha/yr)). As noted above, we have
adjusted our analysis to avoid the potential ``double counting'' of
areas that have burned more than once, and this rate is representative
of the rate at which new (previously unburned) areas of L. papilliferum
habitat are affected by wildfire. In the past 5 years alone (from 2008
to 2012), there were 15 fires that burned approximately 1,190 ac (482
ha) of L. papilliferum EOs, with approximately 850 ac (340 ha) located
in areas that had not previously burned (Hardy 2013, in litt.). These
data indicate that habitat impacts due to wildfire have averaged nearly
170 ac/yr (69 ha/yr) in the past 5 years.
At present, we estimate there are approximately 7,567 ac (3,064 ha)
of L. papilliferum habitat remaining that have not yet been negatively
impacted by fire. It is our best estimate that future rates of habitat
impact will continue at the recently observed rate of between 150 ac/yr
(61 ha/yr) and 170 ac/yr (69 ha/yr); we believe this is a conservative
estimate, as it does not account for potentially greater rates of loss
due to the likely effects of climate change and increasing coverage of
Bromus tectorum. Based on the 55 years of accurate data regarding
wildfire impacts accumulated so far, we can reasonably and reliably
predict that this rate will continue into the future at least until the
point when no unburned habitat for the species will likely remain,
which is approximately 50 years (Figure 1; USFWS 2013, in litt.). Based
on the observed rates of habitat impact due to wildfire, we can
reliably predict that approximately 80 to 90 percent of the remaining
L. papilliferum habitat not yet impacted by fire will be negatively
affected by wildfire within roughly the next 36 to 47 years (Figure 1).
Or, to look at it another way, within the next 36 to 47 years, only 10
to 20 percent of remaining L. papilliferum habitat will likely be
unaffected by wildfire.
As discussed in more detail below in the Summary of Factors
Affecting the Species, we conservatively conclude that, at this point,
the species will be in danger of extinction. Thus, because we can
reasonably predict that L. papilliferum is likely to become an
endangered species in approximately 36 to 47 years, we consider that
projection to occur within the foreseeable future, which is at least 50
years based on the rate at which the primary effect of wildfire is
expected to act on the species. Because of the synergistic interaction
between wildfire and the invasion of nonnative plant species, by
association, we assume that future colonization of L. papilliferum
habitat by invasive nonnatives will proceed on approximately the same
timetable (discussed further below).
We recognize that our model (Figure 1; USFWS 2013, in litt.) is
relatively simple, assuming, for example, that the impacts to habitat
from wildfire will continue to occur at a constant rate over time, when
in reality the extent of area affected by wildfire will vary from year
to year. However, for our purposes of developing a reliable estimate of
a timeframe within which L. papilliferum is likely to become
endangered, we believe this projection makes reasonable use of the best
scientific data available to predict the effects of wildfire on the
species over time. As noted above, because of the close and synergistic
association between the occurrence of wildfire and invasion by
nonnative plants, followed by habitat loss and fragmentation, we
believe this timeframe similarly applies to the primary threat of
invasive nonnative plants and fragmentation and isolation as well.

[[Page 8423]]

[GRAPHIC] [TIFF OMITTED] TP12FE14.002

In summary, wildfire effects have already impacted 53 percent of
the total Lepidium papilliferum EO area rangewide. At the current rate
of habitat impacted by wildfire, we anticipate that 80 to 90 percent of
the remaining L. papilliferum habitat will be affected by wildfire
within approximately the next 36 to 47 years. Because we can reliably
predict that the threats of wildfire, and, by association, invasive,
nonnative plant species, will cause the species to be in danger of
extinction at this point, this time period of 36 to 47 years is within
the foreseeable future.

Invasive, Nonnative Plant Species

The rate of conversion from native sagebrush-steppe to primarily
nonnative annual grasslands continues to accelerate in the Snake River
Plain of southwest Idaho (Whisenant 1990, p. 4), and is closely tied to
the increased frequency and shortened intervals between wildfires. The
continued spread of Bromus tectorum throughout the range of Lepidium
papilliferum, coupled with the lack of effective methods to control or
eradicate B. tectorum, leads us to conclude that the extent and
frequency of wildfires will continue to increase indefinitely, given
the demonstrated positive feedback cycle between these factors
(Whisenant 1990, p. 4; Brooks and Pyke 2001, p. 5; D'Antonio and
Vitousek 1992, pp. 73, 75; Brooks et al. 2004, p. 678). Under current
climate change projections, we also anticipate that future climatic
conditions will favor further invasion by B. tectorum, that fire
frequency will likely increase, and the extent and severity of fires
may increase as well (Brown et al. 2004, pp. 382-383; Neilson et al.
2005, p. 150; Chambers and Pellant 2008, pp. 31-32; Karl et al. 2009,
p. 83, Bradley et al., in press, p. 5). As summarized in our 2009 final
listing rule, ``. . . if the invasion of B. tectorum continues at the
rate witnessed over the last century, an area far in excess of the
total range occupied by L. papilliferum could be converted to nonnative
annual grasslands within the foreseeable future'' (74 FR 52032).
Invasive, nonnative plants have become established in Lepidium
papilliferum habitats by spreading through natural dispersal (unseeded)
or have been intentionally planted as part of revegetation projects
(seeded). Invasive nonnative plants can alter multiple attributes of
ecosystems, including geomorphology, wildfire regime, hydrology,
microclimate, nutrient cycling, and productivity (Dukes and Mooney
2003, pp. 1-35). They can also negatively affect native plants through
competitive exclusion, niche displacement, hybridization, and
competition for pollinators; examples are widespread among native taxa
and ecosystems (D'Antonio and Vitousek 1992, pp. 63-87; Olson 1999, p.
5; Mooney and Cleland 2001, p. 1).
Invasive nonnative plant species pose a serious and significant
threat to Lepidium papilliferum, particularly when the synergistic
effects of nonnative, annual grasses and wildfire are considered.
Invasive, nonnative, unseeded species that pose threats to L.
papilliferum include the annual grasses Bromus tectorum and
Taeniatherum caput-medusae that are rapidly forming monocultures across
the southwestern Idaho landscape. Evidence that B. tectorum is likely
displacing L. papilliferum is provided by Sullivan and Nations' (2009,
p. 135) statistical analyses of L. papilliferum abundance and nonnative
invasive plant species cover within slickspots. Working with 5 years of
HIP data collected from 2004 through 2008, Sullivan and Nations found
that the presence of other plants in slickspots, particularly invasive
exotics such as Bassia prostrata (forage kochia), a seeded nonnative
plant species, and Bromus tectorum, was associated with the almost
complete exclusion of L. papilliferum from those microsites (Sullivan
and Nations 2009, pp. 111-112). According to their analysis, the
presence of B. tectorum in

[[Page 8424]]

the surrounding plant community shows a consistently significant
negative relationship with the abundance of L. papilliferum across all
physiographic regions (Sullivan and Nations 2009, pp. 131, 137), and a
significant negative relationship with L. papilliferum abundance within
slickspots in the Snake River Plain and Boise Foothills regions
(Sullivan and Nations 2009, p. 112).
Additionally, we have increasing evidence that nonnative plants are
invading the slickspot microsite habitats of Lepidium papilliferum
(Colket 2009, Table 4, pp. 37-49) and successfully outcompeting and
displacing the species (Grime 1977, p. 1185; DeBolt 2002, in litt;
Quinney 2005, in litt; Sullivan and Nations 2009, p. 109). Monitoring
of HIP transects shows that L. papilliferum-occupied sites that were
formerly dominated by native vegetation are showing relatively rapid
increases in the cover of nonnative plant species (Colket 2008, pp. 1,
33). Regarding Bromus tectorum in particular, vast areas of the Great
Basin are already dominated by this nonnative annual grass, and
projections are that far greater areas are susceptible to future
invasion by this species (Pellant 1996, p. 1). In addition, most
climate change models project conditions conducive to the further
spread of nonnative grasses such as B. tectorum in the Great Basin
desert area occupied by L. papilliferum in the decades to come (see
Climate Change under Factor E, below).
Geospatial analyses indicate that by 2008 approximately 20 percent
of the total area of all Lepidium papilliferum EOs rangewide was
dominated by introduced invasive annual and perennial plant species
(Stoner 2009, p. 81). Because this analysis only considered areas that
were `dominated' by introduced invasive species, it does not provide a
comprehensive estimate of invasive species presence within the range of
L. papilliferum. For example, the 2008 HIP monitoring results revealed
that all 80 HIP transects monitored within 54 EOs had some (Colket
2009, Table 4, pp. 37-49) nonnative, unseeded plant cover. The 2008 HIP
monitoring results also revealed that, of the 80 HIP transects, 18
transects had some level of nonnative, seeded plant cover (Colket 2009,
Table 4, pp. 37-49). In addition, monitoring of HIP transects rangewide
indicated that nonnative plant cover is continuing to increase at a
relatively rapid pace (Colket 2008, pp. 1, 3). For example, Colket
(2008, pp. 1-3) reported increases in nonnative plant species cover of
5 percent or more over the span of 4 to 5 years in 28 percent of the
HIP transects formerly dominated by native plant species. More recent
data collected by the Idaho Department of Fish and Game (IDFG) since
2009 indicates that the number of transects with a percent or more
increase in nonnative cover since establishment of the transect has
significantly increased from 40 transects in 2009 to 61 transects in
2011 (IDFG 2012, pp. 12-13). In the 2012 report (p. 10), it was noted
that ``many transects had far more than a 5% increase, and some were so
heavily invaded that they were barely recognizable as slickspots.''
Bradley and Mustard (2006, p. 1146) found that the best indicator
for predicting future invasions of Bromus tectorum was the proximity to
current populations of the grass. Colket (2009, pp. 37-49) reports that
52 of 80 HIP transects (65 percent) had B. tectorum cover of 0.5
percent or greater within slickspots in at least 1 year between 2004
and 2008; nearly 95 percent of slickspots had some B. tectorum present.
If current proximity to B. tectorum is an indicator of the likelihood
of future invasion by that nonnative species, then Lepidium
papilliferum is highly vulnerable to future invasion by B. tectorum
throughout its range. If the invasion of B. tectorum continues at the
rate witnessed over the last century, an area far in excess of the
total range occupied by L. papilliferum could be converted to nonnative
annual grasslands in the near future. First introduced around 1889
(Mack 1981, p. 152), B. tectorum cover in the Great Basin is now
estimated at approximately 30,000 mi\2\ (80,000 km\2\) (Menakis et al.
2003, p. 284), translating into an historical invasion rate of
approximately 300 mi\2\ (700 km\2\) a year over 120 years. In addition,
climate change models for the Great Basin region also predict climatic
conditions that will favor the growth and further spread of B. tectorum
(See Climate Change under Factor E, in the 2009 final rule (74 FR
52014; October 8, 2009) for a more detailed discussion of climate
change).
Given the observed negative association between the abundance of
Lepidium papilliferum and invasive nonnative plants both within
slickspot microsites and in the surrounding plant community, the
demonstrated ability of some nonnative plants to displace L.
papilliferum from slickspots, and the recognized contribution of
nonnative plants such as Bromus tectorum to the increased fire
frequency that additionally poses a primary threat to the species, we
consider invasive nonnative plants to pose a threat that is having a
significant effect on L. papilliferum. Currently, there are no feasible
means of controlling the spread of B. tectorum or the subsequent
increases in wildfire frequency and extent once B. tectorum is
established on a large scale (Pellant 1996, pp. 13-14; Menakis et al.
2003, p. 287; Pyke 2007). The eradication of other invasive nonnative
plants poses similar management challenges, and future land management
decisions will determine the degree to which seeded nonnative plants
may affect L. papilliferum.
In summary, data shows that all 80 HIP monitoring transects have
some level of invasive nonnative plant species; that by 2008, 20
percent of the total area of all Lepidium papilliferum EOs rangewide
was dominated by introduced invasive plant species; and nonnative plant
cover is continuing to increase at a relatively rapid rate. Given the
synergistic relationship between wildfire and the spread of invasive
nonnative plant species, such as Bromus tectorum, combined with the
fact that broadscale eradication methods for controlling these threats
have not been developed, we anticipate that 80 to 90 percent of the
remaining Lepidium papilliferum habitat will be affected by invasive
nonnative plant species, to the point where they are outcompeting L.
papilliferum, on a timeframe similar to that of increased wildfire
effects. As with the primary threat of wildfire, because we can
reliably predict that the associated primary threat of invasive,
nonnative plant species will cause the species to be in danger of
extinction in approximately 36 to 47 years, this time period is within
the foreseeable future.

Planned or Proposed Development

Although the threat of development is relatively limited in
geographic scope, the effect of development on Lepidium papilliferum
can be severe, potentially resulting in the direct loss of individuals,
and perhaps more importantly, the permanent loss of its unique
slickspot microsite habitats. As described in the Background section of
the 2009 final listing rule, L. papilliferum occurs primarily in
specialized slickspot microsites. Slickspots and their unique edaphic
and hydrological characteristics are products of the Pleistocene
period, and they likely cannot be recreated on the landscape once lost.
The potential, direct loss of slickspots to the effects from
development, particularly those slickspots that are currently occupied
by the species and provide the requisite conditions to support L.
papilliferum, is therefore of great concern in terms of providing for
the long-term viability of the species.

[[Page 8425]]

Development can also affect Lepidium papilliferum through indirect
effects by contributing to increased habitat fragmentation, nonnative
plant invasion, human-caused ignition of wildfires, and potential
reductions in the population of insect pollinators. Development of
sagebrush-steppe habitat is of particular concern in the Boise
Foothills region, which, although relatively limited in its geographic
extent, supports the highest abundance of L. papilliferum plants per
HIP transect (Sullivan and Nations 2009, pp. 3, 103, 134). Past
development has eliminated some historical L. papilliferum EOs (Colket
et al. 2006, p. 4), and planned and proposed future developments
threaten several occupied sites in the Snake River Plain and Boise
Foothills regions (see below). Most of the recent development effects
have occurred on the Snake River Plain and Boise Foothills regions,
which collectively comprise approximately 83 percent of the extent of
EOs; development has not been identified as an issue on the Owyhee
Plateau (Stoner 2009, pp. 13-14, 19-20).
In the 2009 final listing rule (74 FR 52036), we were aware of 10
approved or proposed development projects planned for these regions
(State of Idaho 2008, pp. 3-5), which would affect 13 out of 80 EOs (16
percent of EOs). However, many of these proposed developments and
associated infrastructure projects are no longer being considered for
implementation. Currently, we are aware of only three projects that
could potentially affect Lepidium papilliferum and its habitat (Chaney,
pers. comm. 2013a). The Spring Valley Planned Community (a.k.a., the M3
Development), is a 5,600-ac (2,300-ha) development that is scheduled
for initiating construction in 2013 in the foothills north of Eagle.
Construction is planned for five phases over a 20-year period. It is
expected that the development and its associated infrastructure on
adjacent Federal lands will result in some effects to the species and
its habitat at three EOs (52, 76, and 108) (Hardy, pers. comm. 2013).
The Dry Creek Ranch Development is a 1,400-ac (570-ha) development
located north of Hidden Springs in Idaho. It is proposed to be built in
five phases over a 10-year period (Chaney, pers. comm. 2013b). This
development appears to overlap slightly with EO 38 (a D-ranked EO). Due
to the low quality of the development map, the amount of overlap is
uncertain, although it appears to be a very small area relative to the
size of the EO polygon (Chaney, pers. comm. 2013c). This area is
currently proposed as a designated natural area of the development;
therefore, direct effects associated with construction of the
development are expected to be minimal.
In addition, the Gateway West Transmission Line Project, which is
scheduled to be constructed in phases from 2016 through 2021, would
likely affect the species and its habitat, including proposed critical
habitat, in southwestern Idaho. Although a final routing of the project
has not yet been determined, the Gateway West Transmission Line Project
could potentially affect 5 EOs within the project footprint and a total
of 11 EOs within the Action Area (defined as the right-of-way footprint
and the additional 0.5-mi (0.8-km) buffer (Tetra Tech 2013, p. 64)).
Though these developments and associated infrastructure projects
have not yet been constructed, they define the foreseeable future with
respect to development. Given the current information, based on
approved or proposed project plans and proposed construction timelines,
we anticipate that approximately 17 percent of known Lepidium
papilliferum EOs will be affected by development within the next 20
years. This period of time represents the foreseeable future with
respect to development, as this is the period of time over which we can
reasonably predict development and associated infrastructure projects
that will likely occur. The threat of development will have a negative
effect on the species in combination with the primary threats of
wildfire and invasive, nonnative plants. However, the effects of
development are secondary to the effects on the species from the
primary threats of an altered wildfire regime and invasive nonnative
plants; thus, we do not anticipate that the threat of development alone
will cause L. papilliferum to become an endangered species within this
timeframe or significantly alter our prediction of when this species
will become in danger of extinction.

Habitat Fragmentation and Isolation of Small Populations

Lepidium papilliferum occurs in naturally patchy microsite
habitats, and the increasing degree of habitat fragmentation produced
by wildfires and development threatens to isolate and fragment
populations beyond the distance that its insect pollinators are capable
of traveling. Genetic exchange in L. papilliferum is achieved through
either seed dispersal or insect-mediated pollination (Robertson and
Ulappa 2004, pp. 1705, 1708; Stillman et al. 2005, pp. 1, 6-8), and
plants that receive pollen from more distant sources demonstrate
greater reproductive success in terms of seed production (Robertson and
Ulappa 2004, pp. 1705, 1708). Lepidium papilliferum habitats separated
by distances greater than the effective range of available pollinating
insects are at a genetic disadvantage, and may become vulnerable to the
effects of loss of genetic diversity (Stillman et al. 2005, pp. 1, 6-8)
and a reduction in seed production (Robertson et al. 2004, p. 1705). A
genetic analysis of L. papilliferum suggested that populations in the
Snake River Plain and the Owyhee Plateau may have reduced genetic
diversity (Larson et al. 2006, p. 17; note the Boise Foothills were not
analyzed separately in this study).
Many of the remaining occurrences of Lepidium papilliferum,
particularly in the Snake River Plain and Boise Foothills regions, are
restricted to small, remnant patches of suitable sagebrush-steppe
habitat. When last surveyed, 31 EOs (37 percent) each had fewer than 50
plants (Colket et al. 2006, Tables 1 to 13). Many of these small
remnant EOs exist within habitat that is degraded by the various threat
factors previously described. Small L. papilliferum populations are
likely persisting due to their long-lived seed bank, but the long-term
risk of depletion of the seed banks for these small populations and the
elimination of new genetic input make the persistence of these small
populations uncertain. Providing suitable habitats and foraging
habitats for the species' insect pollinators is important for
maintaining L. papilliferum genetic diversity. Small populations are
vulnerable to relatively minor environmental disturbances such as
wildfire, herbicide drift, and nonnative plant invasions (Given 1994,
pp. 66-67), and are subject to the loss of genetic diversity from
genetic drift and inbreeding (Ellstrand and Elam 1993, pp. 217-237).
Smaller populations generally have lower genetic diversity, and lower
genetic diversity may in turn lead to even smaller populations by
decreasing the species' ability to adapt, thereby increasing the
probability of population extinction (Newman and Pilson 1997, p. 360).
Habitat fragmentation from the effects of development or wildfires
has affected 62 of the 79 EOs for which habitat information is known
(15 of 16 on the Boise Foothills, 35 of 42 on the Snake River Plain,
and 12 of 21 on the Owyhee Plateau), and 78 EOs (all except one on the
Owyhee Plateau) have fragmentation occurring within 1,600 ft (500 m) of
the EOs (Cole 2009, Threats Table). Additionally, development projects
are

[[Page 8426]]

planned within the occupied range of Lepidium papilliferum that would
contribute to further large-scale fragmentation of its habitat,
potentially resulting in decreased viability of populations through
decreased seed production, reduced genetic diversity, and the increased
inherent vulnerability of small populations to localized extirpation
(See Development, above).
In summary, the increasing degree of fragmentation of Lepidium
papilliferum and its habitat is primarily produced by wildfires, loss
and conversion of surrounding sagebrush-steppe habitats, and the
effects of development. We can reliably predict that habitat
fragmentation effects will continue at a rate similar to wildfire and
other threat effects, such that 80 to 90 percent of the remaining L.
papilliferum habitat will be affected within roughly the next 36 to 47
years, which is, therefore, within the foreseeable future.

Owyhee Harvester Ants

In recent years, concern has emerged over the potential detrimental
effects of seed predation on Lepidium papilliferum by the Owyhee
harvester ant (Robertson and White 2009). Robertson and White reported
that Owyhee harvester ants can remove up to 90 percent of L.
papilliferum fruits and seeds, either directly from the plant or by
scavenging seeds that drop to the ground (Robertson and White 2009, p.
9). A more recent study (Robertson and Crossman, 2012) corroborated the
results from Robertson and White (2009), and goes further by showing
that seed loss through predation by Owyhee harvester ants remains high
(median = 92 percent), even when total seed output for individual
plants is considered. For example, in one of their paired samples, they
found 4,861 seeds beneath the control plant, but only 301 seeds beneath
the plant exposed to ants. In another, they found 2,328 seeds beneath
the control plant and 365 beneath the treatment plant. These results
demonstrate that Owyhee harvester ants have the capacity to remove a
large percentage of the seeds produced by L. papilliferum, even when
seed output numbers in the thousands.
Data also suggests that the number of Owyhee harvester ant colonies
is increasing in the range of Lepidium papilliferum. In 2010,
researchers recorded 842 harvester ant colonies across 15 study sites.
Results from 2012 demonstrate that only 2 years later, that number has
increased to 947 colonies, which represents a 12.5 percent increase,
resulting from the loss of 133 colonies and the addition of 239
(Robertson 2013, p. 4).
Although Owyhee harvester ants are a native species, they are
increasingly colonizing areas occupied by Lepidium papilliferum in
response to the ongoing degradation of native sagebrush systems. The
expansion of Owyhee harvester ant colonies coincides with the
replacement of sagebrush by grasses, and the increase in seed predation
as a consequence of harvester ants expanding into areas adjacent to
occupied slickspots has the potential to significantly affect L.
papilliferum recruitment and the replenishment of the seed bank, which
could affect the long-term viability of L. papilliferum.
Studies are currently underway to investigate Owyhee harvester ant
colony dynamics within Lepidium papilliferum habitat. However, we
currently lack enough data to develop a foreseeable future estimate for
this threat at this time, although we expect the threat to continue to
increase as the number of ant colonies continues to increase as a
result of increased wildfire and the associated conversion of sagebrush
to grasses.

Consideration of Conservation Measures

The threats to Lepidium papilliferum are ongoing and acting
synergistically to negatively affect the species and its habitat, and
are expected to continue into the foreseeable future. Although
conservation measures to address some of these threat factors have been
considered by the Service, as described in the 2009 final listing rule,
effective controls to address the increased frequency of wildfire and
eradicate the expansive infestation of nonnative plants throughout the
range of L. papilliferum are not currently available, nor do we
anticipate that controls will become available anytime soon that are
likely to be effective on a scale sufficient to prevent the species
from becoming in danger of extinction in the foreseeable future.
In addition to those conservation measures evaluated in the 2009
final listing rule, we considered a relatively new conservation
measure. Rangeland Fire Protection Associations (RFPAs) are currently
being established in some parts of southern Idaho, where important
habitat for Greater sage-grouse (Centrocercus urophasianus) (``sage-
grouse'') occurs. These RFPAs are designed to provide ranchers and
landowners in rural areas with the necessary tools and training to
allow them to assist with wildfire prevention and respond quickly to
wildfire in areas containing sage-grouse habitat. One of these RFPAs,
the Three Creek RFPA, has been established within the Lepidium
papilliferum Owyhee Plateau physiographic region, where both L.
papilliferum and sage-grouse co-occur. Benefits from first response to
wildland fires that are realized to sage-grouse within this RFPA may
also extend to L. papilliferum habitat in that area. Another RFPA, the
Mountain Home RFPA, is located in the vicinity of L. papilliferum
occupied habitat within the Snake River Plain physiographic region.
Idaho Code Section 38-104 was amended during the 2013 legislative
session to clarify the requirements and process for the establishment
of the RFPAs (State Board of Land Commissioners, 2013). Applicants that
meet the requirements of an RFPA enter into a Master Agreement with the
State, which provides them with the legal authority to detect, prevent,
and suppress fires in the RFPA boundaries. RFPAs also require a
Cooperative Fire Protection Agreement between the individual RFPA and
the appropriate Federal agency, which provides the RFPAs the authority
to take action on Federal land (Houston 2013, pers. comm.; Glazier
2013, pers. comm.). Although RFPAs have not yet demonstrated their
ability to address the increased frequency of wildfire within the range
of L. papilliferum, effective management of fire as a threat is often
dependent on the timeliness of initial response efforts. Therefore,
while RFPAs have not yet shown to be effective to offset the threats to
the species to the point that it is not likely to become an endangered
species within the foreseeable future, we view their formation as a
positive conservation step for sagebrush-steppe habitat.

Summary of Factors Affecting the Species

The current status of Lepidium papilliferum reflects the past
effects from the threats described above that have already affected or
degraded more than 50 percent of the species' unique habitats, as well
as the continued and ongoing vulnerability of the species' slickspot
habitats to these same threats. Because we still do not see strong
evidence of a steep negative population trend for the species
(consistent with what we described in our 2009 final listing rule (74
FR 52051)), we believe that L. papilliferum is not in immediate danger
of extinction. We do, however, conclude that L. papilliferum is likely
to become in danger of extinction in the foreseeable future, based on
our assessment of that period of time over which we can reasonably rely
on predictions regarding the threats to the species. Our analysis has
led us to conclude that future effects from the

[[Page 8427]]

synergistic and cumulative effects of increased wildfire, invasive
nonnative plants, development, and other threat factors will affect the
remaining L. papilliferum habitats at a level where the species would
persist in only a small number of isolated EOs, with 80 to 90 percent
of its remaining habitat impacted by these threats, and most likely
with small populations and fragmented from other extant populations. At
this point, we would consider the species to be in danger of
extinction.
Given the wildfire history that has affected approximately 53
percent of the L. papilliferum habitat over the last 55 years (1957-
2012), combined with the ongoing, expansive infestation of invasive
plants across the species' range, and the fact that no broad-scale
Bromus tectorum eradication methods or effective means for controlling
the altered wildfire regime have been developed, these threats to L.
papilliferum can reasonably be anticipated to continue for at least 50
years, and probably indefinitely. This information (in concert with the
observed negative association between these ongoing and persistent
threats and the species' distribution and abundance throughout its
range, along with reasonable predictions about future conditions) leads
us to the conclusion that at the current and anticipated rate of future
habitat effects, L. papilliferum is likely to be in danger of
extinction within the next 36 to 47 years, which is within the
foreseeable future (the time period of at least 50 years, over which we
can reliably predict the primary threat factors will continue to act
upon the species). At this point, we believe 80 to 90 percent of its
habitat will have been affected by the primary threats to the species,
and L. papilliferum would likely persist only in a small number of
isolated and fragmented populations.

Determination

Based on an assessment of the best scientific and commercial data
available regarding the present and future threats to the species, we
conclude that threatened status should be reinstated for Lepidium
papilliferum. The plant is endemic to southwest Idaho and is limited in
occurrence to an area that totals approximately 16,000 ac (6,500 ha).
The species' unique slickspot habitats are finite and are continuing to
degrade in quality due to a variety of threats. The species' limited
area of occurrence makes it particularly vulnerable to the various
threats affecting its specialized microsite habitats, and more than 50
percent of L. papilliferum EOs are already known to have been impacted
from the effects of wildfire. The primary threats to the species are
the effects of wildfire and invasive nonnative plants, especially
Bromus tectorum. As stated in our 2009 final listing rule, we now have
information indicating a statistically significant negative association
between L. papilliferum abundance and wildfire, and between L.
papilliferum abundance and cover of B. tectorum in the surrounding
plant community. These negative associations are consistent throughout
the range of the species. Wildfire continues to affect L. papilliferum
habitat throughout the range at an annual rate higher than described in
our 2009 final listing rule, and we expect this trend to continue and
possibly further increase due to the projected effects of climate
change. Furthermore, B. tectorum and other nonnative species continue
to spread and degrade the sagebrush-steppe ecosystem where L.
papilliferum persists, and we anticipate increased wildfire frequency
and effects in those areas where nonnative plant species, especially B.
tectorum, are dominant.
Similar to our findings in our 2009 final listing rule, although we
do not see strong evidence of a steep negative population trend for the
species, it should be noted that the total number of Lepidium
papilliferum plants counted in HIP monitoring in 2011 and 2012 were the
lowest since 2005, when complete counts for the species were initiated,
with 16,462 plants in 2011 and 9,202 plants in 2012. Above-ground
numbers of L. papilliferum individuals can fluctuate widely from one
year to the next; however, because the primary threats of wildfire and
nonnative invasive plants, especially Bromus tectorum, are currently
affecting the species throughout its limited range, the recent 2011 and
2012 low population counts are of concern. All available information
indicates that all the significant threats described in the 2009 final
listing rule and this new analysis, including wildfire, nonnative
invasive plants, development, and habitat fragmentation, will continue
and likely increase into the foreseeable future. The projected future
effects of climate change will further magnify the primary threats from
wildfire and B. tectorum, and, by association with the resulting
increase in grasses, the further expansion of Owyhee harvester ants.
Although conservation measures to address some of these threat factors
have been considered by the Service, effective controls to address the
increased frequency of wildfire and eradicate the expansive infestation
of nonnative plants throughout the range of the L. papilliferum are not
currently available and are not likely to be available within the
foreseeable future.
As found in our 2009 final listing rule (74 FR 52052), we
anticipate the continuation or increase of all of the significant
threats to Lepidium papilliferum into the foreseeable future, even
after accounting for ongoing and planned conservation efforts, and we
find that the best available scientific data indicate that the negative
consequences of these threats on the species will likewise continue or
increase. Population declines and habitat degradation will likely
continue in the foreseeable future to the point at which L.
papilliferum will become in danger of extinction.
Section 3 of the Act defines an endangered species as ``any species
which is in danger of extinction throughout all or a significant
portion of its range'' and a threatened species as ``any species which
is likely to become an endangered species within the foreseeable future
throughout all or a significant portion of its range.'' Because we have
not yet observed the extirpation of local Lepidium papilliferum
populations or steep declines in trends of abundance, we do not believe
the species is presently in danger of extinction, or meets the
definition of an endangered species. However, as noted earlier, we do
anticipate that L. papilliferum will become in danger of extinction
when it reaches the point that its habitat has been so diminished that
the species persists only in a small number of isolated EOs, with small
populations that are fragmented from other extant populations. We
conservatively estimate this point will be reached in approximately 36
to 47 years, when 80 to 90 percent of its remaining habitat will have
been affected based on the ongoing range of rates of L. papilliferum
habitat impacted by fire, and the close association between fire and
invasion by Bromus tectorum and other nonnative invasive plants. We
can, therefore, reasonably assume that, without the unanticipated
development of future effective conservation measures, the magnitude of
the threats affecting L. papilliferum and its habitats will become
progressively more severe, and that those threats, acting
synergistically, are likely to result in the species becoming in danger
of extinction within the next 36 to 47 years, which is within the
foreseeable future as we have defined it here for the species.
Therefore, we conclude that, under the Act, threatened status should be
reinstated for L. papilliferum throughout all of its range,

[[Page 8428]]

and we seek public input on this determination. If, following
consideration of public comments, we decide to list L. papilliferum
under the Act, we will also pursue designating critical habitat for
this species. For information and the opportunity to comment on that
proposed rulemaking process, see our related document published
elsewhere in today's Federal Register.

References Cited

A complete list of all references cited in this rule is available
on the Internet at http://www.regulations.gov . In addition, a complete
list of all references cited herein, as well as others, is available
upon request from the Idaho Fish and Wildlife Office, Boise, Idaho (see
ADDRESSES).

Authors

The primary authors of this document are the staff members of the
Idaho Fish and Wildlife Office, U.S. Fish and Wildlife Service (see
ADDRESSES).

Authority

The authority for this action is the Endangered Species Act of
1977, as amended (16 U.S.C. 1531 et seq.).

Dated: January 14, 2014.
Stephen D. Guertin,
Deputy Director, U.S. Fish and Wildlife Service.
[FR Doc. 2014-03133 Filed 2-11-14; 8:45 am]
BILLING CODE 4310-55-P