[Federal Register Volume 85, Number 196 (Thursday, October 8, 2020)]
[Proposed Rules]
[Pages 63474-63499]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2020-21510]
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DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
50 CFR Part 17
[Docket No. FWS-R4-ES-2019-0018; FXES11130900000-190-FF09320000]
RIN 1018-BE09
Endangered and Threatened Wildlife and Plants; Reclassification
of the Red-Cockaded Woodpecker From Endangered to Threatened With a
Section 4(d) Rule
AGENCY: Fish and Wildlife Service, Interior.
ACTION: Proposed rule.
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SUMMARY: We, the U.S. Fish and Wildlife Service (Service), propose to
reclassify the red-cockaded woodpecker (Dryobates (= Picoides)
borealis) as a threatened species with a rule issued under section 4(d)
of the Endangered Species Act of 1973 (Act), as amended. If we finalize
this rule as proposed, it would reclassify the red-cockaded woodpecker
from endangered to threatened on the List of Endangered and Threatened
Wildlife (List). This proposal is based on a thorough review of the
best available scientific and commercial data, which indicate that the
species' status has improved such that it is not currently in danger of
extinction throughout all or a significant portion of its range. We are
also proposing a rule under the authority of section 4(d) of the Act
that provides measures that are necessary and advisable to provide for
the conservation of the red-cockaded woodpecker. In addition, we
correct the
[[Page 63475]]
List to reflect that Picoides is not the current scientifically
accepted generic name for this species. We seek information, data, and
comments from the public regarding this proposal.
DATES: We will accept comments received or postmarked on or before
December 7, 2020. Comments submitted electronically using the Federal
eRulemaking Portal (see ADDRESSES, below) must be received by 11:59
p.m. Eastern Time on the closing date. We must receive requests for
public hearings, in writing, at the address shown in FOR FURTHER
INFORMATION CONTACT by November 23, 2020.
ADDRESSES: You may submit comments by one of the following methods:
(1) Electronically: Go to the Federal eRulemaking Portal: http://www.regulations.gov. In the Search box, enter FWS-R4-ES-2019-0018,
which is the docket number for this rulemaking. Then, click on the
Search button. On the resulting page, in the Search panel on the left
side of the screen, under the Document Type heading, click on the
Proposed Rule box to locate this document. 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-R4-ES-2019-0018, U.S. Fish and Wildlife
Service, MS: JAO/1N, 5275 Leesburg Pike, Falls Church, VA 22041-3803.
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 Information Requested, below, for more information).
Availability of supporting materials: This proposed rule and
supporting documents (including the species status assessment report
and references cited) are available at http://www.regulations.gov under
Docket No. FWS-R4-ES-2019-0018 and at the Southeast Regional Office
(see FOR FURTHER INFORMATION CONTACT).
FOR FURTHER INFORMATION CONTACT: Aaron Valenta, Chief, Division of
Restoration and Recovery, U.S. Fish and Wildlife Service, Southeast
Regional Office, 1875 Century Boulevard, Atlanta, GA 30345; telephone
404-679-4144. Persons who use a telecommunications device for the deaf
(TDD) may call the Federal Relay Service at 800-877-8339.
SUPPLEMENTARY INFORMATION:
Executive Summary
Why we need to publish a rule. Under the Act, a species may warrant
reclassification from endangered to threatened if it no longer meets
the definition of an endangered species. The red-cockaded woodpecker is
listed as endangered, and we are proposing to reclassify it as
threatened because we have determined it is no longer in danger of
extinction throughout all or a significant portion of its range.
However, we have determined that the species meets the definition of a
threatened species, in that it is in danger of extinction in the
foreseeable future throughout all of its range. We may only list,
reclassify, or delist a species by issuing a rule to do so; therefore,
for the red-cockaded woodpecker, we must first publish a proposed rule
in the Federal Register to reclassify the species and request public
comments on the proposal. Furthermore, take prohibitions of section 9
of the Act can only be applied to threatened species by issuing a
section 4(d) rule. Finally, we are changing the scientific name of the
red-cockaded woodpecker in the List of Endangered and Threatened
Wildlife from Picoides borealis to Dryobates borealis, and such action
can only be taken by issuing a rule.
The basis for our action. Under the Act, we may determine that a
species is an endangered or threatened species based on any one or a
combination of five factors: (A) The present or threatened destruction,
modification, or curtailment of its habitat or range; (B)
overutilization for commercial, recreational, scientific, or
educational purposes; (C) disease or predation; (D) the inadequacy of
existing regulatory mechanisms; or (E) other natural or manmade factors
affecting its continued existence. The factors for downlisting a
species (changing its status from endangered to threatened) are the
same as for listing it. We have determined that the red-cockaded
woodpecker is no longer at risk of extinction and, therefore, does not
meet the definition of endangered, but it is still affected by the
following current and ongoing stressors to the extent that the species
meets the definition of a threatened species under the Act:
Lack of suitable roosting, nesting, and foraging habitat
due to legacy effects from historical logging, incompatible forest
management, and conversion of forests to urban and agricultural uses
(Factor A).
Fragmentation of habitat, with resulting effects on
genetic variation, dispersal, and connectivity to support demographic
populations (Factor A).
Stochastic events such as hurricanes, ice storms, and
wildfires, exacerbated by the environmental effects of climate change
(Factor E).
Small populations (Factor E).
We are also proposing a section 4(d) rule. When a species is listed
as threatened, section 4(d) of the Act allows for the issuance of
regulations that are necessary and advisable to provide for the
conservation of the species. Accordingly, we are proposing a 4(d) rule
for the red-cockaded woodpecker that would, among other things,
prohibit incidental take associated with actions that would result in
the further loss or degradation of red-cockaded woodpecker habitat,
including impacts to cavity trees, actions that would harass red-
cockaded woodpeckers during breeding season, and use of insecticides
near clusters. The section 4(d) rule would also prohibit incidental
take associated with the installation of artificial cavities and
inspections of cavity contents, unless covered under a section
10(a)(1)(A) permit. The section 4(d) rule would also, among other
things, except from prohibitions incidental take associated with
conservation or habitat restoration activities carried out in
accordance with a Service- or State-approved management plan providing
for red-cockaded woodpecker conservation, incidental take associated
with red-cockaded woodpecker management and military training
activities on Department of Defense installations with a Service-
approved integrated natural resources management plan, certain actions
that would harm or harass red-cockaded woodpeckers during breeding
season associated with existing infrastructure that are not increases
in the existing activities, and activities authorized by a permit under
Sec. 17.32.
Peer Review. In accordance with our joint policy on peer review
published in the Federal Register on July 1, 1994 (59 FR 34270), and
our August 22, 2016, memorandum updating and clarifying the role of
peer review of listing actions under the Act, we sought the expert
opinions of six appropriate specialists regarding the species status
assessment (SSA) report that informed this proposed rule. The purpose
of peer review is to ensure that our reclassification determination is
based on scientifically sound data, assumptions, and analyses. The peer
reviewers have expertise in: (1) The life history and population
dynamics of the red-cockaded woodpecker; (2) fire ecology and forest
habitat conditions; and (3) conservation management.
Information Requested
We intend that any final action resulting from this proposed rule
will be based on the best scientific and
[[Page 63476]]
commercial data available and be as accurate and as effective as
possible. Therefore, we request comments and information from other
concerned governmental agencies, Native American tribes, the scientific
community, industry, or any other interested party concerning this
proposed rule.
We particularly seek comments on:
(1) Information concerning the biology and ecology of the red-
cockaded woodpecker.
(2) Relevant data concerning any stressors (or lack thereof) to the
red-cockaded woodpecker, particularly the effects of habitat loss,
small populations, habitat fragmentation, and hurricanes and other
severe natural events.
(3) Current or planned activities within the geographic range of
the red-cockaded woodpecker that may negatively impact or benefit the
species.
(4) Reasons why we should or should not reclassify the red-cockaded
woodpecker from an endangered species to a threatened species under the
Act (16 U.S.C. 1531 et seq.).
(5) Information about current or proposed land management plans and
conservation plans for the red-cockaded woodpecker, and whether they
may negatively impact or benefit the species, including the likelihood
of such plans and their associated management activities persisting
into the future.
(6) Information on regulations that are necessary and advisable for
the conservation and management of the red-cockaded woodpecker and that
the Service can consider in developing a 4(d) rule for the species,
including whether the measures outlined in the proposed 4(d) rule are
necessary and advisable for the conservation of the red-cockaded
woodpecker. We particularly seek comments concerning:
(a) The extent to which we should include any of the section 9
prohibitions in the 4(d) rule, including whether there are additional
activities or management actions that should be prohibited or excepted
from the prohibitions for incidental take of the red-cockaded
woodpecker;
(b) Whether it is appropriate to prohibit use of insecticides and
herbicides on standing pine trees within 0.50 mile from the center of
an active cavity tree cluster, including whether the spatial area
covered by this prohibition is appropriate;
(c) Whether it is appropriate to prohibit operations conducted near
active cavity trees that render cavity trees unusable to red-cockaded
woodpeckers, and what types of operations and actions should be
included in this prohibition;
(d) Whether any other forms of take should be excepted from the
prohibitions in the 4(d) rule, including activities that should be
excepted from the prohibitions for incidental take of the red-cockaded
woodpecker once a property is being managed in accordance with a
Service- or State-approved management plan, and what factors should be
included in a Service- or State-approved management plan;
(e) What additional conditions, if any, should be placed upon
State-approved management plans such that they provide adequate
protection to red-cockaded woodpeckers, for example, the type and
extent of monitoring and reporting to the Service;
(f) Whether an exception should be made for habitat regeneration
activities without a Service- or State-approved management plan, and
what limiting conditions should be placed on such activities;
(g) Whether it is appropriate to except from the prohibitions red-
cockaded woodpecker management and military training activities on
Department of Defense installations with a Service-approved integrated
natural resources management plan;
(h) Whether the installation of artificial cavities should be
excepted from the prohibitions for incidental take of red-cockaded
woodpecker for individuals who have completed training and have
achieved a certain level of proficiency, and what that training and
proficiency should be; and,
(i) Whether there are additional provisions the Service may wish to
consider for the 4(d) rule in order to conserve, recover, and manage
the red-cockaded woodpecker. Please include sufficient information
(such as scientific journal articles, or other credible publications)
to allow the Service to verify any scientific or commercial information
you include.
(7) Whether the red-cockaded woodpecker warrants delisting.
Please note that submissions merely stating support for or
opposition to the listing action under consideration without providing
supporting information, 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 a
threatened species must be made ``solely on the basis of the best
scientific and commercial data available.''
You may submit your comments and materials concerning this proposed
rule 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 website. If your submission is made via hard copy 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.
Comments and materials we receive, as well as supporting
documentation we used in preparing this proposed rule, will be
available for public inspection on http://www.regulations.gov, or by
appointment, during normal business hours, at the U.S. Fish and
Wildlife Service, Southeast Regional Office (see FOR FURTHER
INFORMATION CONTACT).
Public Hearing
Section 4(b)(5)(E) of the Act provides for a public hearing on this
proposal, if requested. Requests must be received by the date specified
in DATES. Such requests must be sent to the address shown in FOR
FURTHER INFORMATION CONTACT. We will schedule a public hearing on this
proposal, if requested, and announce the date, time, and place of the
hearing, as well as how to obtain reasonable accommodations, in the
Federal Register at least 15 days before the hearing.
Previous Federal Actions
The red-cockaded woodpecker was listed as endangered on October 13,
1970 (35 FR 16047) under the Endangered Species Conservation Act of
1969, and received Federal protection with the passage of the
Endangered Species Act in 1973. The most recent revision to the red-
cockaded woodpecker recovery plan was released on January 27, 2003
(USFWS 2003, entire; see 68 FR 13710, March 20, 2003). The latest 5-
year review was completed on October 5, 2006 (USFWS 2006 entire); that
5-year review did not recommend changing the classification of the red-
cockaded woodpecker. However, since the 5-year review, we have acquired
new information and conducted a thorough analysis, documented in an SSA
report (USFWS 2020, entire). We also initiated another 5-year review
for the species on August 6, 2018 (83 FR 38320); because we have
determined the species now meets the definition of a threatened species
under the Act, this proposed rule will equate to our 5-year review.
[[Page 63477]]
Background
A thorough review of the taxonomy, life history, ecology, and
overall viability of the red-cockaded woodpecker is presented in the
SSA report (USFWS 2020, entire; available at https://www.fws.gov/southeast/ and at http://www.regulations.gov under Docket No. FWS-R4-
ES-2019-0018). Below is a summary of the information presented in the
SSA report. For further details, please refer to the SSA report.
Species Description and Needs
The red-cockaded woodpecker is a territorial, non-migratory bird
species that makes its home in mature pine forests in the southeastern
United States. Once a common bird distributed contiguously across the
southeastern United States, the red-cockaded woodpecker's rangewide
estimates made around the time of listing in 1970 indicated a decline
to fewer than 10,000 individuals (approximately 1,500 to 3,500 active
clusters; an aggregate of cavity trees used by a group of woodpeckers
for nesting and roosting) in widely scattered, isolated, and declining
populations (Jackson 1971, pp. 12-20; Jackson 1978, entire; USFWS 1985,
p. 22; Ligon et al. 1986, pp. 849-850).
Due to changes in how red-cockaded woodpecker populations have been
defined and surveyed over the years and with more comprehensive surveys
over time, it is difficult to make accurate comparisons today with the
species' status when it was listed. The species continued to decline
even after listing until the early-1990s. However, by 1995, the red-
cockaded woodpecker population had increased to about 4,694 active
clusters or active territories rangewide (Costa and Walker 1995, p.
86). Today, the Service's conservative estimate is about 7,800 active
clusters rangewide (USFWS 2020, pp. 14, 106-108), between 2 and 5 times
the number of clusters at the time of listing.
Red-cockaded woodpeckers were once common throughout open, fire-
maintained pine ecosystems, particularly longleaf pine that covered
approximately 92 million acres before European settlement (Frost 1993,
p. 20). The birds inhabited the open pine forests of the Southeast from
New Jersey, Maryland, and Virginia to Florida, and west to Texas and
north to portions of Oklahoma, Missouri, Tennessee, and Kentucky
(Jackson 1971, entire). Original pine forests were old and open, and
contained a structure dominated by two layers, a canopy and diverse
herbaceous ground cover, maintained by frequent low-intensity fire
(Brockway et al. 2006, pp. 96-98). Both the longleaf pine and other
open pine ecosystems were eliminated from much of their original range
because of early (1700s) European settlement, widespread commercial
timber harvesting, and the naval stores/turpentine industry (1800s).
Early to mid-1900 commercial tree farming, urbanization, and
agriculture contributed to further declines. Much of the remaining
habitat is very different from the vast, historical pine forests in
which the red-cockaded woodpecker evolved. The second growth longleaf
pine forests of today, rather than being dominated by centuries-old
trees as the original forests were, are just reaching that age (90-100
years) required to meet all the needs of the red-cockaded woodpecker.
Furthermore, in many cases, the absence of fire has caused the original
open savannahs to degrade into dense pine/hardwood forest. Much of
today's forest is young and dense, and dominated by loblolly pine, with
a substantial hardwood component and little or no herbaceous
groundcover (Noel et al. 1998, entire; Frost 2006, pp. 37-38).
Nesting and roosting habitat of red-cockaded woodpeckers varies
across the species' range. The largest populations tend to occur in the
longleaf pine woodlands and savannahs of the East Gulf Coastal Plain,
South Atlantic Coastal Plain, Mid-Atlantic Coastal Plain, and Carolina
Sandhills (Carter 1971, p. 98; Hooper et al. 1982, entire; James 1995,
entire; Engstrom et al. 1996, p. 334). The shortleaf/loblolly forests
of the Piedmont, Cumberlands, and Ouachita Mountain regions (Mengel
1965, pp. 306-308; Sutton 1967, pp. 319-321; Hopkins and Lynn 1971, p.
146; Steirly 1973, p. 80) are another important habitat type. Red-
cockaded woodpeckers also occupy a variety of additional pine habitat
types at the edges of their range, including slash (Pinus elliottii),
pond (P. serotina), pitch (P. rigida), and Virginia pines (P.
virginiana) (Steirly 1957, entire; Lowery 1974, p. 415; Mengel 1965,
pp. 206-308; Sutton 1967, pp. 319-321; Jackson 1971, pp. 12-20; Murphy
1982, entire). Where multiple pine species exist, red-cockaded
woodpeckers appear to prefer longleaf pine (Lowery 1974, p. 415;
Hopkins and Lynn 1971, p. 146; Jackson 1971, p. 15; Bowman and Huh
1995, pp. 415-416).
The red-cockaded woodpecker is a relatively small woodpecker.
Adults measure 20 to 23 centimeters (8 to 9 inches) and weigh roughly
40 to 55 grams (1.5 to 1.75 ounces) (Jackson 1994, p. 3; Conner et al.
2001, pp. 53-54). Both male and female adult red-cockaded woodpeckers
are black and white with a ladder back and large white cheek patches.
These cheek patches distinguish red-cockaded woodpeckers from all other
woodpeckers in their range. The red ``cockade'' of the species' common
name is actually a tiny red streak on the upper cheek of males that is
very difficult to see in the field.
Red-cockaded woodpeckers were first described as Picus borealis
(Vieillot 1807, p. 66). The species' English common name is a reference
to the several red feathers on the cheek of males, which are briefly
displayed when the male is excited (Wilson 1810, p. 103). The original
rule identifying the red-cockaded woodpecker as an endangered species
(35 FR 16047; October 13, 1970) listed its scientific name as
Dendrocopus borealis, based on the American Ornithological Union (AOU)
1946 22nd supplement to the 4th AOU checklist edition (AOU 1947, p.
449). The AOU 6th edition (AOU 1982, p. 10CC) classified the species as
Picoides borealis, the scientific name under which the red-cockaded
woodpecker is currently identified in the Federal List of Endangered
and Threatened Wildlife (List). The AOU has since merged with the
Cooper Ornithological Society and is now known as the American
Ornithological Society (AOS). In the recent 59th supplement to the AOS'
checklist of North American birds, the AOS Committee on Classification
and Nomenclature (Committee) changed the classification of Picoides
borealis to Dryobates borealis (Chesser et al. 2018, pp. 798-800). In
doing so, the Committee considered, among other data, results of
phylogenetic analyses with nuclear and mitochondrial DNA (Weibel and
Moore 2002a, entire; Weibel and Moore 2002b, entire; Winkler et al.
2014, entire; Fuchs and Pons 2015, entire; Shakya et al. 2017, entire)
indicating that the genus Picoides was not monophyletic (descended from
a common evolutionary ancestor or ancestral group). As a result, the
genus Picoides was retained for the American three-toed woodpecker (P.
dorsalis) and the black-backed woodpecker (P. arcticus), but all other
North American woodpeckers formerly in Picoides were transferred to
Dryobates. We accept the change of the red-cockaded woodpecker's
classification from Picoides borealis to Dryobates borealis, and in
this rulemaking, we amend the scientific name to match the currently
accepted AOS nomenclature.
Red-cockaded woodpeckers live in groups that share, and jointly
defend,
[[Page 63478]]
territories throughout the year. Group living is a characteristic of
their cooperative breeding system. In cooperative breeding systems,
some mature adults forego reproduction and instead assist in raising
the offspring of the group's breeding male and female (Emlen 1991,
entire). In red-cockaded woodpecker groups, these helpers are typically
male, and participate in incubation, feeding, and brooding of nestlings
and in feeding of fledglings, as well as territory defense, nest
defense, and cavity excavation (Lennartz et al. 1987, entire). A
potential breeding group may consist of zero to as many as five
helpers, but most potential breeding groups consist of only a breeding
pair plus one to two helpers. A red-cockaded woodpecker group occupying
and defending its territory usually consists of a potential breeding
group. A red-cockaded woodpecker group in about 10 percent of cases
consists of single-male that defends its territory while awaiting an
adult breeding female. Red-cockaded woodpeckers are highly monogamous
(Haig et al. 1994b, entire). Group living, however, strongly affects
population dynamics. While not actively breeding themselves, helpers
provide a pool of replacement breeders and thereby act as a buffer
between mortality and productivity. In other words, the number of
groups within a red-cockaded woodpecker population is not strongly
affected by either productivity or mortality in the previous year.
Instead, the number of helpers is affected by these variables, while
the number of potential breeding groups remain constant.
Young birds either disperse in their first year or remain on the
natal territory and become a helper. First-year dispersal is the
dominant strategy for females, but both strategies are common among
males (Walters et al. 1988, pp. 287-301; Walters and Garcia 2016, pp.
69-72). Male helpers may become breeders by inheriting breeding status
on their natal territory or by dispersing to fill a breeding vacancy at
another territory (Walters et al. 1992, p. 625). When helpers move, it
is usually to an adjacent or nearby territory; they rarely disperse
across more than two territories (Kesler et al. 2010, entire). Female
helpers almost never inherit the breeding position on their natal
territory, instead relying on dispersal to neighboring territories to
become breeders. Although some young birds disperse long distances
(more than 100 kilometers (km) in a few cases; Conner et al. 1997c,
entire; Ferral et al. 1997, entire; Costa and DeLotelle 2006, pp. 79-
83), typical dispersal distance of juvenile females is only two
territories from the natal site, with 90 percent dispersing one to four
territories from the natal site (Daniels 1997, pp. 59-61; Daniels and
Walters 2000a, pp. 486-487; Kesler et al. 2010, entire). Juvenile males
are even more sedentary; about 70 percent of males remain on their
natal territory or an immediately adjacent territory at age one, mostly
as helpers with a few as breeders (Walters 1991, pp. 508-510; Daniels
1997, p. 66; Kesler et al. 2010, pp. 1339-1340; Conner et al. 2001 p.
143).
Red-cockaded woodpeckers are unique among North American
woodpeckers in that they nest and roost in cavities they excavate in
living pines (Steirly 1957, p. 282; Jackson 1977, entire). Cavities are
an essential resource for red-cockaded woodpeckers throughout the year,
because the birds use them for roosting year-round, as well as nesting
seasonally. Each individual in a group has its own roost cavity, and
the group usually nests in the breeding male's cavity. The aggregation
of active and inactive cavity trees within the area defended by a
single group is termed the cavity tree cluster (Conner et al. 2001, p.
106). This aggregation of cavity trees is dynamic, changing in shape as
new cavity trees are added through excavation and existing cavity trees
are lost to death or a neighboring group. Excavation of cavities in
live pines is an extremely difficult task, making a cluster of cavity
trees an extremely valuable resource. Expansion into new territories,
therefore, happens more frequently through ``budding,'' or the
splitting of an existing territory with cavity trees into two, rather
than ``pioneering,'' or the construction of a new cavity tree cluster.
The development of techniques to construct artificial cavities
(Copeyon 1990, entire; Allen 1991, entire) offset the lack of natural
cavities and provided managers a new tool to greatly increase cavity
availability, especially after storms. Red-cockaded woodpeckers readily
adopt these artificial cavities. Thousands of artificial cavities have
been installed since the early 1990s, and most populations are
currently dependent on the installation and maintenance of artificial
cavities for their viability.
Red-cockaded woodpeckers require open pine woodlands and savannahs
with large, old pines for nesting and roosting. Old pines are required
as cavity trees because cavity chambers must be completely within the
heartwood to prevent pine resin in the sapwood from entering the
chamber (Conner et al. 2001, pp. 79-155); a tree must be old and large
enough to have sufficient heartwood to contain a cavity. In addition,
old pines have a higher incidence of the heartwood decay that greatly
facilitates cavity excavation. Cavity trees must be in open stands with
little or no hardwood midstory and few or no overstory hardwoods.
Hardwood encroachment on cavity trees resulting from fire suppression
is a well-known cause of cluster abandonment.
Fire suppression also affects foraging. Over 75 percent of the red-
cockaded woodpecker's diet consists of arthropods. Individuals
generally capture arthropods on and under the outer bark of live pines
and in dead branches of live pines. A large proportion of the
arthropods on pine trees crawl up into the trees from the ground, which
implies the condition of the ground cover is an important factor
influencing abundance of prey for red-cockaded woodpecker (Hanula and
Franzreb 1998, entire). The density of pines has a negative
relationship with arthropod abundance and biomass, likely due at least
in part to the negative effect of pine density on ground cover, from
which some of the prey comes (Hanula et al. 2000, entire). Arthropod
abundance and biomass also increase with the age and size of pines
(Hooper 1996, entire; Hanula et al. 2000, entire), which is another
reason older pines are so critical to this species. Accordingly,
suitable foraging habitat generally consists of mature pines with an
open canopy, low densities of small pines, a sparse hardwood or pine
midstory, few or no overstory hardwoods, and abundant native bunchgrass
and forb groundcovers. Frequent fire likely increases foraging habitat
quality by reducing hardwoods and by increasing the abundance and
perhaps nutrient value of prey (James et al. 1997, entire; Hanula et
al. 2000, entire; Provencher et al. 2002, entire). Thus, frequent
growing season fire may be critical in providing red-cockaded
woodpeckers with abundant prey.
Home ranges of red-cockaded woodpeckers vary from 40.5 to 161.9
hectares (ha) (100 to 400 acres (ac)) per group, depending on the
quality of foraging habitat. Red-cockaded woodpecker groups in high-
quality habitat, particularly old growth or restored, fire-maintained
habitat, exhibit much smaller home range and territory sizes than
groups in fire-suppressed habitat (Nesbitt et al. 1983, entire;
Engstrom and Sanders 1997, entire). The fitness of red-cockaded
woodpecker groups also increases where foraging areas are burned
regularly, resulting in sparse hardwood midstory and an abundant grass
and forb groundcover.
[[Page 63479]]
Given the historical loss of significant portions of its native
habitat, and generations of fire suppression degrading remaining old
growth and new second-growth habitat, aggressive management of habitat
through prescribed burning and other vegetation manipulation is key to
the conservation strategy of red-cockaded woodpeckers. In addition, the
small amount of old growth habitat that remains still has potential to
attract woodpeckers if prescribed burning and other tools are deployed
to reduce the midstory; therefore, these habitats should also be
aggressively managed.
Currently, red-cockaded woodpeckers are distributed largely as
discrete populations, with large gaps of unoccupied land between. An
improvement from the species' status at the time of listing, these
gains are due to intensive management implemented beginning in the
1990s. Except in rare instances, these populations remain dependent on
conservation actions, such as prescribed fire, forest management with
compatible silviculture, placement and maintenance of artificial
cavities within existing clusters, creation of new recruitment clusters
using artificial cavities and translocation, and monitoring of
population and habitat conditions.
Summary of Stressors and Conservation Measures Affecting the Species
Section 4(a)(1) of the Act directs us to determine whether any
species is an endangered species or a threatened species because of any
of the following factors: (A) The present or threatened destruction,
modification, or curtailment of its habitat or range; (B)
overutilization for commercial, recreational, scientific, or
educational purposes; (C) disease or predation; (D) the inadequacy of
existing regulatory mechanisms; or (E) other natural or manmade factors
affecting its continued existence. The factors for downlisting a
species (changing its status from endangered to threatened) are the
same as for listing it.
In the SSA report, we review the factors (i.e., threats, stressors)
that could be affecting the red-cockaded woodpecker now or in the
future. However, in this proposed rule, we will focus our discussion on
those factors that could meaningfully impact the status of the species.
Below is a summary of those factors. The results of the SSA report are
discussed later in this proposed rule. For further information, see the
SSA report (USFWS 2020, entire).
The primary risk factor (i.e., stressor) affecting the status of
the red-cockaded woodpecker remains the lack of suitable habitat
(Factor A). Wildfire, pine beetles, ice storms, tornadoes, hurricanes,
and other naturally occurring disturbances that destroy pines used for
cavities and foraging are stressors for the red-cockaded woodpecker
(Factor E), especially given the high number of very small woodpecker
populations (Factor E) (USFWS 2020, pp. 38-39, 81-83, 103, 119-127).
Increases in number and severity of major hurricanes (Bender et al.
2010, entire; Knutson et al. 2010, entire; Walsh et al. 2014, pp. 41-
42), is expected to increase in response to global climate change, and
this could also disproportionately affect the smaller, less resilient
woodpecker populations (Factor E). With rare exception, the vast
majority of red-cockaded woodpecker populations remain dependent on
artificial cavities due to the absence of sufficient old pines for
natural cavity excavation and habitat treatments to establish and
maintain the open, pine-savannah conditions favored by the species
(Factor E). These populations will decline without active and
continuous management to provide artificial cavities and to sustain and
restore forest conditions to provide suitable habitat for natural
cavities and foraging similar to the historical conditions (Conner et
al. 2001, pp 220-239, 270-299; Rudolph et al. 2004, entire).
Habitat Loss and Degradation
The primary remaining threats to the red-cockaded woodpecker's
viability have the same fundamental cause: Lack of suitable habitat.
Historically, the significant impacts to red-cockaded woodpecker
habitat occurred as a result of clearcutting, incompatible forest
management, and conversion to urban and agricultural lands uses. These
impacts have been significantly curtailed and replaced by beneficial
conservation management that sustains and increases populations;
however, stressors caused by adverse historical practices still linger,
including insufficient numbers of cavities, low numbers of suitable old
pines, habitat fragmentation, degraded foraging habitat, and small
populations. These lingering impacts can negatively affect the ability
of populations to grow, even when populations are actively managed for
growth, as the carrying capacity of suitable forest areas across much
of the range can be quite low. However, restoration activities such as
prescribed fire and strategic placement of recruitment clusters can
reduce gaps between populations and increase habitat and population
size toward current carrying capacity. These activities are occurring
across the range of the red-cockaded woodpecker on properties actively
managed for red-cockaded woodpecker conservation.
Currently, stressors to the species resulting from exposure to
habitat modification or destruction are minimal, especially when
compared to historical levels. Periodically, military training on
Department of Defense installations requires clearing of red-cockaded
woodpecker habitat for construction of ranges, expansion of
cantonments, and related infrastructure, but these installations have
management plans to sustain and increase red-cockaded woodpecker
populations. In addition, silvicultural management on Federal, State,
and private lands also occasionally results in temporary impacts to
habitat; for example, red-cockaded woodpecker habitat may be
unavoidably, but temporarily, adversely affected in old, even-aged
loblolly pine stands that require regeneration prior to stand
senescence to sustain a matrix of future suitable habitat for a net
long-term benefit. Similarly, red-cockaded woodpecker habitat may be
temporarily destroyed in areas where offsite loblolly, slash, or other
pines are removed and replaced by the more fire-tolerant native
longleaf pine. However, the net result of these activities is a long-
term benefit, as the goal is to restore these areas to habitat
preferred by woodpeckers.
Natural Disturbances
Wildfire, pine beetles, ice storms, tornadoes, and hurricanes are
naturally occurring disturbances that destroy pines used for cavities,
with subsequent reductions to population size unless management actions
are taken to reduce or ameliorate adverse impacts by providing
artificial cavities, reducing hazardous fuels, and restoring forests to
suitable habitat following these events. These disturbances can also
destroy or degrade foraging habitat and cause direct mortality of
woodpeckers. Small populations are the most vulnerable to these
disturbances. See the SSA report for more information about these
natural disturbances (USFWS 2020, pp. 119-127).
Habitat destruction caused by hurricanes is the most acute and
potentially catastrophic disturbance because hurricanes can impact
entire populations. According to the SSA report, of the 124 current
demographic populations, about 63 populations in the East Gulf Coastal
Plain, West Gulf Coastal Plain, the lower portion of the Upper West
Gulf Coastal Plain, and
[[Page 63480]]
Florida Peninsula ecoregions are vulnerable to potential catastrophic
impacts of hurricanes, particularly major hurricanes. Most (56
populations; 89 percent) of these 63 populations are identified as low
or very low resiliency in the SSA report (see Summary of the SSA
Report, below), which means they face a significant risk from
hurricanes. In addition, the frequency and intensity of Atlantic basin
hurricanes, particularly major Category 4 and 5 storms, are expected to
increase in response to global climate change during the 21st century
(Bender et al. 2010, entire; Knutson et al. 2010, entire; Walsh et al.
2014, pp. 41-42), although the location and frequency of future storms
affected by climate change relative to particular red-cockaded
woodpecker populations cannot be precisely predicted. While larger
populations (greater than 400 active clusters) are the most likely to
withstand a strike by a major hurricane without extirpation (e.g.,
Hooper et al. 1990, entire; Hooper and McAdie 1995, entire; Watson et
al. 1995, entire), smaller populations are more vulnerable to
individual hurricanes, as well as to the effects of recurring storms
depleting cavity trees and foraging habitat with reductions in
population size. However, these populations may be able to withstand
and persist after hurricanes if biologists and land managers implement
prompt, effective post-storm recovery actions, such as installing
artificial cavities, reducing hazardous fuels, and restoring forests to
suitable habitat. Such actions have been occurring after storm events
for managed populations, such as the quick response after Hurricane
Michael in October 2018.
Conservation Management
The reliance on artificial cavities and active habitat management
is not just restricted to post-hurricane recovery efforts. With the
potential exception of several ecologically unique populations in pond
pine and related habitat on organic soils in northeast North Carolina,
none of the current or estimated future populations is capable of
naturally persisting without ongoing management, for reasons discussed
previously. Fortunately, most sites have active management, such as
prescribed fire, artificial cavity installation, and habitat
restoration to maintain these populations across the range of the
species.
Other proactive management that must be maintained for the species
to continue to persist and expand includes translocations into small
populations. Most (108) of the current 124 demographic populations are
small (fewer than 99 active clusters) with inherently very low or low
resiliency. These are the most vulnerable to future extirpation due to
stochastic demographic and environmental factors and inbreeding
depression. Inbreeding depression in small, fragmented populations of
up to 50 to 100 active clusters without adequate immigration can
further increase the probability of decline and future extirpation; for
these populations, red-cockaded woodpecker translocation programs
reduce risks of adverse inbreeding impacts. In addition, as noted in
the SSA report (see Summary of the SSA Report, below), while resiliency
is moderate for 10 of the current populations with 100 to 249 active
clusters and 6 populations exhibit high or very high resiliency,
potential adaptive genetic variation is still expected to decline in
all red-cockaded woodpecker populations (Bruggeman 2010, p. 22,
appendix B pp. 39-42; Bruggeman et al. 2010, entire; Bruggeman and
Jones 2014, pp. 29-33). This is because genetically effective
(Ne) populations of 1,000 or more individuals are needed to
avert the loss of genetic variation in a species (e.g., Lande 1995,
entire; Allendorf and Ryman 2002, p. 73-76). These large population
sizes do not exist in red-cockaded woodpecker populations because not
all birds in an active cluster may be breeders (Reed et al. 1988,
entire, 1993, entire). Possible exceptions may be the two largest
current red-cockaded woodpecker populations at Apalachicola National
Forest/St. Marks National Wildlife Refuge/Tate's Hell State Forest (858
active clusters, ~764 potential breeding groups (PBG)) and North
Carolina Sandhills (781 active clusters, ~695 PBGs). A PBG is a concept
introduced in the 2003 recovery plan (see Recovery Plan and Recovery
Implementation, below), to describe a cluster with a potentially
breeding adult male and female, with or without adult helpers or
successfully fledging young. An active cluster can be either a PBG or a
single territorial bird. So, for example, a red-cockaded woodpecker
population of 310-390 PBGs probably represents a genetically effective
population of only 500 (Reed et al. 1993, p. 307). Effective management
programs to sustain even the smallest populations are critical to
reduce the risks of inbreeding, establish genetic connectivity among
fragmented populations, and maintain ecological diversity and life-
history demographic variation as patterns of representation within and
across broad ecoregions. Because of the outstanding work of our
conservation partners, and their ongoing commitment to continue
implementing proactive management to benefit the red-cockaded
woodpeckers, we expect many of these activities, as articulated in
individual management plans, to continue.
Conservation Measures That Benefit the Species
As noted above, the red-cockaded woodpecker is a conservation-
reliant species and responds well to active management. The vast
majority of properties on public lands harboring red-cockaded
woodpeckers have implemented management programs to sustain or increase
populations consistent with population size objectives in the recovery
plan or other plans. Plans are specific to each property or management
unit, but generally contain the same core features. The most
comprehensive plans call for intensive cavity management with the
installation of artificial cavities to offset cavity loss in existing
territories, maintenance of sufficient suitable cavities to avoid loss
of active territories, and creation of new territories with recruitment
clusters and artificial cavities in restored or suitable habitat to
increase population size. These cavity management activities are
necessary until mature forests are restored with abundant old pines 65
and more years of age for natural cavity excavation. Managers are also
reducing fragmentation by restoring and increasing habitat with
strategic placement of recruitment clusters to reduce gaps within and
between populations. Furthermore, red-cockaded woodpecker subadults
from large or stable donor populations are translocated to augment
growth of small, vulnerable populations. Additionally, managers are
implementing silviculturally compatible methods to sustain, restore,
and increase habitat with an increased use of effectively prescribed
fire. Finally, managers are implementing monitoring programs looking at
both habitat and populations to provide feedback for effective
management. The future persistence of the species will require these
management actions to continue.
In the SSA, we identified 124 current demographic populations with
a total of 7,794 active clusters. Seventy-one of the 124 currently
delineated red-cockaded woodpecker populations occur on lands solely
owned and managed by Federal agencies with 4,033 current active
clusters. Seven additional populations with 2,026 active clusters occur
on lands that are under mixed Federal and State ownership but are
predominately managed by Federal agencies. Thirty-one populations are
on lands managed
[[Page 63481]]
solely by State agencies with 557 active clusters. Thus, 88 percent of
delineated populations with 6,059 active clusters (78 percent of all
7,794 active clusters in 124 populations) are on lands managed entirely
by Federal and State agencies with statutes to require management plans
addressing the conservation of natural resources. Two populations occur
in a matrix of public and private lands, mostly Federal and State
properties, with 816 active clusters. One population with 20 active
clusters is managed by a State agency and private landowner. Twelve
populations with 342 active clusters reside entirely on private lands,
of which 10 populations with 295 active clusters are managed by
landowners enrolled in the safe harbor program. Also, most of the
private landowners are enrolled in the safe harbor program in the two
previously described populations with a matrix of mostly public lands
with some private lands. Landowners with safe harbor agreements (SHA)
manage about 375 active clusters in all or parts of 12 populations.
There are additional active clusters of red-cockaded woodpeckers on
nongovernmental lands, enrolled in SHAs, but, as noted above, we did
not have adequate data to spatially delineate all of these demographic
populations on these lands. Of the 933 active clusters managed by safe
harbor landowners in eight states (Alabama, Florida, Georgia,
Louisiana, North Carolina, South Carolina, Texas and Virginia),
demographic populations with respective population sizes have not been
delineated for about 558 active clusters.
Below is a summary of the types of management plans that include
elements directed at red-cockaded woodpecker management and
conservation. Note that the numbers of populations below do not
necessarily add up to the 124 current demographic populations
identified in the SSA report, because some populations cross property
boundaries and are managed by more than one landowner.
Department of Defense
Within the range of the red-cockaded woodpecker, the Department of
Defense (DOD) manages habitat for 14 populations, of which 5 are in the
moderate to very high resiliency categories, and 9 low to very low
resiliency. The Sikes Act (16 U.S.C. 670 et seq.) requires DOD
installations to conserve and protect the natural resources within
their boundaries. Integrated natural resources management plans
(INRMPs) are planning documents that outline how each military
installation with significant natural resources will manage those
resources, while ensuring no net loss in the capability of an
installation to support its military testing and training mission.
Within the range of the red-cockaded woodpecker, all DOD installations
have current INRMPs that address protection and recovery of the
species, both through broader landscape-scale ecosystem stewardship and
more specific management activities targeted directly at red-cockaded
woodpecker conservation. These activities include providing artificial
cavities to sustain active clusters, installing recruitment clusters to
increase population size, sustaining and increasing habitat through
compatible forest management and prescribed fire, and increasing the
number and distribution of old pines for natural cavity excavation.
Each installation has a red-cockaded woodpecker property or population
size objective with provisions for monitoring. For most installations,
a schedule is available for reducing certain military training
restrictions in active clusters in response to increasing populations
and attaining population size thresholds.
U.S. Forest Service
The U.S. Forest Service manages habitat for 49 red-cockaded
woodpecker populations on 17 National Forests and the Savannah River
Site Unit (owned by the Department of Energy but managed by the U.S.
Forest Service). Of these populations, 10 have moderate to very high
resiliency and 39 identified as having low or very low resiliency.
Under the National Forest Management Act of 1976 (16 U.S.C. 1600 et
seq.), National Forests are required to develop plans that provide for
multiple use and sustained yield of forest products and services, which
includes timber, outdoor recreation, range, watershed, fish and
wildlife, and wilderness resources. These plans, called ``land and
resource management plans'' (LRMPs) and their amendments, have been
developed for every National Forest in the current range of the red-
cockaded woodpecker. However, LRMPs are not always up to date. The
LRMPs for National Forests in three States (Louisiana, North Carolina,
and Texas) predate the Service's 2003 recovery plan. Nevertheless, all
National Forests (even those with outdated LRMPs) have implemented
management strategies to protect and manage red-cockaded woodpecker
habitat and increase populations. Current LRMPs approved prior to the
2003 recovery plan were developed in coordination with the Forest
Service's 1995 regional plan for managing the red-cockaded woodpecker
on southern National Forests (U.S. Forest Service 1995, entire). The
1995 regional plan includes most of the new and integrated management
methods (Rudolph et al. 2004, entire) to sustain and increase
populations as incorporated in the recovery plan. These include
installing artificial cavities, increasing population size with
recruitment clusters, and restoring suitable habitat with forest
management treatments and prescribed fire. Some of the more recent
LRMPs, such as for National Forests in Mississippi, are more broadly
programmatic, but incorporate the 2003 recovery plan by reference for
appropriate conservation methods and objectives.
U.S. Fish and Wildlife Service
The National Wildlife Refuge System manages 10 National Wildlife
Refuges with red-cockaded woodpeckers, which includes all or part of 19
populations. We considered three of these populations to be moderate to
very high resiliency in the SSA report, while 16 have low to very low
resiliency. Under the National Wildlife Refuge System Improvement Act
of 1997 (Pub. L. 105-57), refuges prepare comprehensive conservation
plans (CCPs), which provide a blueprint for how to manage for the
purposes of each refuge; address the biological integrity, diversity,
and environmental health of a refuge; and facilitate compatible
wildlife-dependent recreation. National Wildlife Refuges have assigned
population objectives from the 2003 recovery plan through their CCPs or
as stepped down or modified in habitat management plans. Specific tasks
in these plans include installation of artificial cavities;
translocation; establishing recruitment clusters; population
monitoring; prescribed fire; and silvicultural treatments, such as mid-
story removal, thinning of younger stands, and, where necessary,
increasing stand age diversity with regeneration of pine stands.
National Park Service
The National Park Service (NPS) manages two red-cockaded woodpecker
populations, one with low and the other with very low resilience, on
Big Cypress National Preserve (Preserve) in Florida. The NPS's plans do
not include specific provisions for red-cockaded woodpecker management;
however, at the Preserve, the NPS conducts prescribed fire to maintain
and improve the south Florida slash pine forest communities that
support the species. The NPS also allows Florida Fish and Wildlife
Conservation Commission
[[Page 63482]]
biologists to conduct red-cockaded woodpecker surveys, monitor,
periodically install a limited number artificial cavities, and conduct
translocations on occasion. From surveys and monitoring by the Florida
Fish and Wildlife Conservation Commission, 75 percent of all cavity
trees within the Preserve consist of natural cavities, which is an
unusually high number relative to other populations, reflecting the
predominately old condition of the Big Cypress south Florida slash pine
forests (Spikler 2019, pers. comm).
State Lands
The States of Arkansas, Florida, Georgia, Louisiana, North
Carolina, Oklahoma, South Carolina, Texas, and Virginia have red-
cockaded woodpecker populations on State-owned lands. All or parts of
40 currently delineated populations occur on State lands. Seven
populations on or partially on State lands have moderate to very high
resiliency, while 32 populations have low to very low resiliency. These
properties range from State Forest Service or Forest Commission
holdings to Department of Wildlife, Department of Natural Resources,
and State Park Service properties. The mission, and therefore the
extent and type of management, of each unit varies. For example, some
State lands are managed generally to provide ecosystem benefits, such
as managing pine-dominated forests with prescribed fire. However, other
State properties implement proactive conservation management
specifically for the red-cockaded woodpecker. For example, the Florida
Fish and Wildlife Conservation Commission manages all of its properties
under the umbrella of the Florida Red-cockaded Woodpecker Management
Plan, with other specific plans for the agency's wildlife management
areas.
Other Lands
Eight states have a Service-approved programmatic safe harbor
agreement program with a section 10(a)(1)(A) enhancement of survival
permit under the Act to enroll non-Federal landowners that voluntarily
provide beneficial management. Of 459 enrolled non-federal landowners,
one is for a State property and all others are private nongovernmental
lands. All or parts of 12 currently delineated demographic populations
are covered under a current SHA. Again, we are aware of additional
active clusters covered under SHAs, but we lack the data to delineate
them as demographic populations. Safe harbor agreements are
partnerships between landowners and the Service involving voluntary
agreements under which the property owners receive formal regulatory
assurances from the Service regarding their management responsibilities
in return for contributions to benefit the listed species. For the red-
cockaded woodpecker, this includes voluntary commitments by landowners
to maintain and enhance red-cockaded woodpecker habitat to support
baseline active clusters, which is the number of clusters at the time
of enrollment, and additional above-baseline active clusters that
increase in response to beneficial management. Beneficial management
includes the maintenance and enhancement of existing cavity trees and
foraging habitat through activities such as prescribed fire, mid-story
thinning, seasonal limitations for timber harvesting, and management of
pine stands to provide suitable foraging habitat and cavity trees.
Because above-baseline active clusters and habitat covered under these
plans can be returned to ``baseline'' conditions, any population growth
on lands covered by SHAs may not be permanent. In addition, enrolled
landowners can terminate their agreement at any time. However, fewer
than 5 of the 459 enrolled landowners have ever used their permit
authorities to return the number of active clusters to baseline
conditions, and only 12 landowners have terminated their agreement.
There currently are 241 active above-baseline clusters in the program.
In summary, the red-cockaded woodpecker is a conservation-reliant
species, but one that responds very well to active management. The
majority of red-cockaded woodpecker populations are managed under plans
that address population enhancement and habitat management to sustain
or increase populations, and to meet the 2003 recovery plan objectives
for primary core, secondary core, and essential support populations. We
expect these property owners will continue to implement their
respective management plans, partially because, even if we reclassify
the red-cockaded woodpecker as a threatened species, the woodpecker
would remain protected under the Act.
Summary of Biological Status
As described in the preceding section, the Act directs us to
determine whether any species is an endangered or a threatened species
because of any of the factors listed in section 4(a)(1) affecting the
species' continued existence. The SSA report documents the results of
our comprehensive biological status review for the red-cockaded
woodpecker, including an assessment of the potential stressors to the
species. The SSA report does not represent a decision by the Service on
whether the species should be listed as an endangered or a threatened
species under the Act. It does, however, provide the scientific basis
for our regulatory decision, which involves the further application of
standards within the Act and its implementing regulations and policies.
The following is a summary of the key results and conclusions from the
SSA report; the full SSA report can be found on the Southeast Region's
website at https://www.fws.gov/southeast/ or at http://www.regulations.gov under Docket No. FWS-R4-ES-2019-0018.
Summary of SSA Report
To assess the red-cockaded woodpecker's viability, we used the
three conservation biology principles of resiliency, representation,
and redundancy (Shaffer and Stein 2000, pp. 306-310). Briefly,
resiliency supports the ability of the species to withstand
environmental and demographic stochasticity (for example, random
fluctuations in birth rates or annual variation in rainfall);
representation supports the ability of the species to adapt over time
to long-term changes in the environment (for example, climate changes);
and redundancy supports the ability of the species to withstand
catastrophic events (for example, hurricanes). In general, the more
redundant and resilient a species is and the more representation it
has, the more likely it is to sustain populations over time, even under
changing environmental conditions. Using these principles, we
identified the red-cockaded woodpecker's ecological requirements for
survival and reproduction at the individual, population and species,
and described the beneficial and risk factors influencing the species'
viability.
The SSA process can be categorized into three sequential stages.
During the first stage, we evaluated the individual species' life-
history needs. The next stage involved an assessment of the historical
and current condition of species' demographics and habitat
characteristics, including an explanation of how the species arrived at
its current condition. The final stage of the SSA involved making
predictions about the species' responses to positive and negative
environmental and anthropogenic influences. This process used the best
available information to characterize viability as the ability of a
species to sustain populations in the wild over time. We utilized this
[[Page 63483]]
information to inform our regulatory decision.
For the red-cockaded woodpecker to maintain viability, its
populations or some portion thereof must be resilient. The SSA assessed
resiliency at the population level, primarily by evaluating the current
population size as the number of active clusters and secondarily by the
associated past growth rate. Red-cockaded woodpecker resiliency
primarily depends upon a single factor: Amount of managed suitable
habitat. Historically, impacts to the red-cockaded woodpecker occurred
as a result of clearcutting, incompatible forest management, and
conversion to urban and agricultural lands uses. While these impacts
have been significantly curtailed and replaced by beneficial
conservation management, legacy stressors stemming from these
historical impacts still remain, including: (1) Insufficient numbers of
natural cavities and suitable, abundant old pines for natural cavity
excavation; (2) habitat fragmentation and its effects on genetic
variation, dispersal, and connectivity to support demographic
populations; (3) lack of suitable foraging habitat for population
growth and expansion; and (4) small populations. Intensive management
is ongoing to ameliorate these threats.
Representation can be measured by the breadth of genetic or
environmental diversity within and among populations and gauges the
probability that a species is capable of adapting to environmental
changes. The SSA evaluated representation based on the extent and
variability of habitat characteristics across the geographical range of
the species and characterized representative units for the red-cockaded
woodpecker using ecoregions. This analysis generally followed the
approach to representation used in the species' recovery plan (USFWS
2003, pp. 148, 152-155). A genetic analysis of material prior to 1970
in eight ecoregions indicates the species appears to have been a single
genetic unit or population without significant genetic structure or
differentiation (Miller et al. 2019, entire). The best available
rangewide genetic data indicate a loss of genetic variation after 1970
with development of significant contemporary genetic structure among
ecoregions. This structuring is most likely in response to
fragmentation of this historically more widespread and abundant
species, reduced dispersal between populations and regions, and genetic
drift (Stangel et al. 1992, entire; Haig et al. 1994a, p. 590; Haig et
al. 1996, p. 730; Miller et al. 2019, entire). However, the similarity
of genetic parameters between the 1992-1995 and 2010-2014 periods
indicates that a further significant loss of genetic diversity with an
increase in differentiation among ecoregions may have been ameliorated
by conservation management that began in the 1990s to rapidly increase
populations and translocate individuals from large populations to
augment small populations (Miller et al. 2019, entire). Mitochondrial
DNA haplotype diversity has declined significantly since the pre-1970s,
but not to extent of a loss of any phylogenetically distinct lineages
that may represent evolutionarily significant units (Miller et al.
2019, p. 9-10).
For the red-cockaded woodpecker to maintain viability, the species
also needs to exhibit some degree of redundancy. Measured by the number
of populations, their resiliency, and their distribution, redundancy
increases the probability that the species has a margin of safety to
withstand, or can bounce back from, catastrophic events. The SSA
reported redundancy for red-cockaded woodpeckers as the total number
and resilience of population segments and their distribution within and
among representative units.
Current Condition
Resiliency
In the SSA report, we identified 124 demographic populations across
the range of the red-cockaded woodpecker for which sufficient data were
available to complete the SSA analyses for the recent past to current
condition. We acknowledge there are other small occurrences of red-
cockaded woodpeckers, particularly on private lands; however, spatial
data for these other occurrences were incomplete, so for purposes of
the SSA analysis, and subsequently throughout this proposed rule, we
focused only on these 124 demographic populations that could be
spatially delineated. The SSA categorizes two important parameters
related to current population resiliency: Current population size and
associated population growth rate. Population resilience size
categories are defined as follows: Very low (fewer than 30 active
clusters); low (30 to 99 active clusters); moderate (100 to 249 active
clusters); high (250 to 499 active clusters); and very high (greater
than or equal to 500 active clusters).
Population resilience size-classes were derived from spatially
explicit individual-based models and simulations for this species
(Letcher et al. 1998, entire; Walters et al. 2002, entire), the
performance of which have been reasonably validated with reference to
actual populations (Schiegg et al. 2005, entire; Walters et al. 2011,
entire). We also considered subsequent modifications of these models
and simulations that incorporated adverse effects of inbreeding
depression on population persistence and growth (Daniels et al. 2000,
entire; Schiegg et al. 2006, entire). These models were developed from
extensive actual biological data and specifically designed to
incorporate the dynamics of the red-cockaded woodpecker's cooperative
breeding system that are not accurately represented in other types of
population models (Zieglar and Walters 2014, entire). These models
simulated populations of different initial sizes under natural
conditions without any limiting habitat and cavity conditions that
could impair population growth. We consider these results as indicators
of inherent resilience because effects of conservation management
actions to sustain and increase populations were not simulated. These
beneficial management practices would include installation of
recruitment clusters with artificial cavities to induce new red-
cockaded woodpecker groups and translocation to augment the size and
growth of small populations. The vast majority of the 124 current
populations have been and currently are subject to specific
conservation management actions for this species, including recruitment
clusters. Thus, the inherent resilience size-classes derived from
population models and simulations have been further qualified by actual
growth rates as indicators of effects of beneficial management for this
conservation-reliant species.
Populations with very low resiliency (fewer than 30 active
clusters) are the most vulnerable to future extirpation following
stochastic events with declining growth and future extirpation likely
in 50 years. Populations with low resiliency (30 to 99 active clusters)
are more persistent, but remain vulnerable to declining growth,
inbreeding depression, and extirpation. Inbreeding depression reduces
red-cockaded woodpecker egg hatching rates and survival of fledglings
(Daniels and Walters 2000a, entire). Inbreeding in red-cockaded
woodpeckers is a consequence of breeding among close relatives in
response to naturally short dispersal distances of related birds among
nearby breeding territories exacerbated by small populations and
fragmentation among populations that reduce immigration rates of
unrelated individuals (Daniels and Walters 2000a, entire; 2000b,
entire; Daniels et al. 2000, entire; Schiegg et al. 2002, entire; 2006,
entire). The consequences of inbreeding
[[Page 63484]]
depression further reduce population growth rates and increase the
probabilities of extirpation in populations in sizes up to about 100
active clusters (Daniels et al. 2000, entire; Schiegg et al. 2006,
entire). The largest populations in this class may have long-term
average growth rates ([lambda] or lambda) near 1.0 (a [lambda] of 1.00
is considered stable, less than 1.00 is declining, and greater than
1.00 is increasing), but with slow rates of decline and a high risk of
inevitable future extirpation. The moderate resiliency category (100 to
249 active clusters) is a large transitional class. Smaller populations
without inbreeding likely will experience a slow decline, but without
extirpation in 25 to 50 years because at least some territories will
survive, although as much smaller and more vulnerable populations. The
largest populations in this class may be relatively stable or nearly
so. Populations with a high resiliency (250 to 499 active clusters) on
average should be stable except perhaps for the very smallest that may
have average growth rates slightly less than 1.00. In high resiliency
populations, adverse demographic effects of inbreeding depression are
not expected. Populations in the very high resiliency class (greater
than or equal to 500 active clusters) are stable and the most
resilient, with average growth rates of 1.0 or slightly greater. Based
on the most recent data, 3 red-cockaded woodpecker populations fall
within the very high category (totaling 2,143 clusters); 3 are high
(1,364 total clusters); 10 are moderate (1,555 total clusters); 37 are
low (1,923 total clusters); and 71 are very low (809 total clusters).
In short, of the estimated 7,794 active clusters distributed among 124
populations across the range of the species, 5,062, or 65 percent, are
in 16 moderate to very high resiliency populations.
The second resiliency parameter measured in the SSA was growth rate
of the populations. For the SSA, there were only sufficient GIS data to
delineate past demographic populations with population size data to
compute past-to-current growth rates for 98 of the 124 populations. Of
these 98 populations, the SSA determined that 13 (13.3 percent) were
declining ([lambda] <1.00), 19 (19.4 percent) were stable ([lambda] =
1.00-1.02), and 66 (67.3 percent) were increasing ([lambda] >1.02).
Combining growth rates with population sizes of these 98 populations,
growth rates have been stable to increasing for all of those moderate,
high, and very high resiliency populations where growth rate could be
measured. At the other end, of the 86 very low and low resiliency
populations where growth rate could be measured, 73 populations
demonstrated stable and positive growth rates, with several populations
showing very high growth rates. This is indicative of the positive
effects of red-cockaded woodpecker conservation management programs on
these locations and the ability of such management to offset inherently
low or very low population resilience. Growth rates are decreasing in
only 13 (15 percent) of the low and very low resiliency populations
where growth rate could be measured.
Current population conditions in the SSA report were derived from
the number and location of active clusters primarily in 2016 and 2017.
These conditions did not take into account Hurricane Michael, which
came ashore near Mexico Beach, Florida, on October 10, 2018, as a
Category 4 storm. More than 1,500 cavity trees were blown down or
damaged in populations in the Apalachicola National Forest, Silver Lake
Wildlife Management Area (WMA), Jones Ecological Research Center, and
Tate's Hell State Forest (Dunlap 2018, entire; McDearman 2018, entire).
These represented three demographic populations: Apalachicola National
Forest-St. Marks NWR-Tate's Hell State Forest, Jones Ecological
Research Center, and Silver Lake WMA. The effects of Hurricane Michael
did not change current conditions for these populations in terms of
their resilience size-classes as described in the SSA report, and as
summarized here.
After this hurricane, 870 clusters were rapidly assessed in
Apalachicola National Forest where 1,410 cavity trees were damaged or
blown down, followed by the installation of 682 artificial cavities
(Dunlap 2018, entire). In 2018, prior to this hurricane, the
Apalachicola National Forest population survey estimate was 833 active
clusters (Casto 2018, p. 4). After the hurricane, the 2019 survey
estimate was 857 active clusters (Casto 2019, p. 9). At Silver Lake
WMA, 154 cavity trees were damaged or lost; however, within two weeks
of the storm more than 90 artificial cavities were installed (Burnham
2019a, p. 9). The pre-storm population was 36 active clusters and 32
potential breeding groups, with a post-storm decline to 33 active
clusters and 28 potential breeding groups (Burnham 2019b, p. 6). About
24 percent of all cavity trees at the Jones Ecological Research Center
were damaged or destroyed (Rutledge 2019, p. 13). The pre-storm Jones
Center population was 38 active clusters with 34 potential breeding
groups (Henshaw 2019, p. 4). Post-storm, after installation of
artificial cavities, there were 40 active clusters with 31 potential
breeding groups (Henshaw 2019, p. 4). At Tate's Hell State Forest,
about 23 of 527 cavity trees among 61 active clusters and 51 PBGs were
blown down (Alix 2018, pers. comm.). After post-storm management, the
Tate's Hell State Forest currently consists of 64 active clusters and
54 PBGs (Alix 2019, pers. comm.). Overall, the total decline in number
of active clusters from all of these properties is minor, demonstrating
that with prompt, active management, the vulnerability of these
populations to stochastic events can potentially be reduced. Additional
intermediate and long-term habitat restoration treatments at these
properties are still required to reduce hazardous fuels from large and
small woody debris, restore habitat, and implement reforestation or
regeneration in the most severely damaged pine stands. Overall, we do
not anticipate that Hurricane Michael will affect long-term viability
of these populations. However, we will continue to evaluate the success
of the emergency, intermediate, and long-term response efforts.
In summary, although most of red-cockaded woodpecker populations
for which we have data are still small, and remain vulnerable to
stochastic events and possibly inbreeding depression, the vast majority
of populations are showing stable or increasing growth rates, and the
majority of birds and clusters occur in a few large, resilient
populations. Of the 98 populations for which trend data are available,
only 13 percent are declining. In addition, over 65 percent of red-
cockaded woodpecker clusters are currently in moderate to very high
resiliency populations.
Representation
We evaluated representation based on the extent and variability of
habitat characteristics across the species' geographical range. For the
red-cockaded woodpecker, the SSA report characterizes representative
units using ecoregions, which align with the recovery units identified
in the recovery plan (USFWS 2003, pp. 145-161). These ecoregions are
broad areas defined by physiography, topography, climate, and major
historical and current forest types and thus serve as surrogates for
the variability of habitat characteristics across the species' range,
such as ecology, life history, geography, and genetics. There are
currently 13 ecoregions containing at least one red-cockaded woodpecker
population: (1) Cumberland Ridge and Valley; (2) Florida Peninsula (=
South/Central Florida); (3) East Gulf Coastal Plain; (4) Mid-Atlantic
Coastal Plain; (5) Ouachita
[[Page 63485]]
Mountains; (6) Piedmont; (7) South Atlantic Coastal Plain; (8)
Sandhills; (9) Upper East Gulf Coastal Plain; (10) Upper West Gulf
Coastal Plain; (11) West Gulf Coastal Plain; and (12) Gulf Coast
Prairie and Marshes and (13) Mississippi River Alluvial Plain, two
ecoregions that the SSA includes that were not represented in the
recovery plan because they only have one small population each. In the
SSA report, figures 20 and 24 provide maps illustrating the ecoregions
(USFWS 2019, pp. 91, 109), and figure 25 includes the historical county
records for the range of the species (USFWS 2020, p. 116).
The historical range of the red-cockaded woodpecker included the
entire distribution of longleaf pine ecosystems, but the species also
inhabited open shortleaf, loblolly, slash pine, and Virginia pine
forests, especially in the Ozark-Ouachita Highlands and the southern
tip of the Appalachian Highlands with occasional occurrences noted for
New Jersey, Pennsylvania, Maryland, and Ohio (Costa and Walker 1995,
pp. 86-87). Red-cockaded woodpeckers no longer occur in six ecoregions
(Ozarks, Central Mixed Grass Prairies, Cross Timbers and Southern Mixed
Grass Prairies, Northern Atlantic Coast, Central Appalachian Forest,
and Southern Blue Ridge). The recovery plan did not consider recovery
in these areas to be essential to the conservation of the species.
The remaining 13 ecoregions still contain red-cockaded woodpeckers.
In these ecoregions, red-cockaded woodpeckers occupy a wide variety of
pine-dominated ecological settings scattered across a broad geographic
range. Considerable geographic variation in habitat types exists,
illustrating the species' ability to adapt to a wide range of
ecological conditions within the constraints of mature or old growth,
southern pine ecosystems. However, of these 13 ecoregions, only 4
currently have populations that are considered to have high or very
high resiliency (East Gulf Coastal Plain, South Atlantic Coastal Plain,
Sandhills, and Mid-Atlantic Coastal Plain), and 6 have populations that
are low or very low resiliency (Florida Peninsula, Ouachita Mountains,
Cumberland Ridge and Valley, Piedmont, Gulf Coast Prairie and Marshes,
and Mississippi River Alluvial Plain). Of those six, the latter four
have only one or two populations each, meaning these ecoregions, and
the ecology, life history, geography, and genetics they represent, are
particularly vulnerable to stochastic events. However, five of the six
populations in these four ecoregions all demonstrate stable or
increasing growth rates (growth rate for the sixth, Mitchell Lake in
the Piedmont Ecoregion, could not be measured), primarily because they
are being actively managed.
In summary, the species no longer persists in six ecoregions where
it was historically present. However, it is still currently represented
in the 13 remaining ecoregions, and this level of representation has
not decreased further since the 2003 recovery plan revision, which did
not consider the extirpated ecoregions necessary for recovery.
Nevertheless, while populations persist in the 13 ecoregions, many of
the ecoregions contain only populations that have low or very low
resiliency, and four ecoregions only have one or two populations, which
are all of low or very low resiliency, making them vulnerable to
stochastic events.
Redundancy
In the SSA report, redundancy for red-cockaded woodpeckers is
characterized by the number of resilient populations and their
distribution within each ecoregion. Of the 124 current populations,
there are 3 populations that have very high resiliency, 3 with high, 10
with moderate, 37 with low, and 71 with very low resiliency. As noted
above, 4 of 13 ecoregions currently harbor high or very high resiliency
populations: East Gulf Coastal Plain (2 populations), Mid-Atlantic
Coastal Plain (1 population), Sandhills (2 populations), and South
Atlantic Coastal Plain (1 population). In terms of redundancy, only two
ecoregions, East Gulf Coastal Plain and Sandhills, have more than one
population classified as having high or very high resiliency, and only
these two ecoregions also have more than two populations classified as
having moderate to very high resiliency. Redundancy of smaller
populations is higher with a greater number of populations in the
moderate, low, and very low resiliency categories within and across
ecoregions. Four ecoregions (South Atlantic Coastal Plain, Mid-Atlantic
Coastal Plain, West Gulf Coastal Plain, and Upper East Gulf Coastal
Plain) have two populations exhibiting moderate to high resiliency, and
thus some level of redundancy in terms of resilient populations. Most
of the populations in these regions have moderately resiliency. The
greatest number of current populations reside in the Mid-Atlantic
Coastal Plain (24) and Florida Peninsula (22), although most of these
are in the very low and low resiliency class. However, even for the
more resilient populations, habitat fragmentation has resulted in wide
gaps between forested areas, meaning there is little connectivity
between populations.
Across the range of the red-cockaded woodpecker, the populations
with the most resiliency (high or very high) populations tend to be in
the eastern half of the range and in coastal or near coastal ecoregions
rather than interior. Florida Peninsula and the western ecoregions
currently only have populations in the moderate to very low resiliency
categories. This concentration of the more resilient populations in
coastal and near coastal areas could affect the species' ability to
withstand catastrophic events such as hurricanes. Particularly for
these populations, post-storm management actions are critical, as they
can mitigate cavity loss and reduce hazardous fire fuels.
In summary, a species needs a suitable combination of all three
characteristics (resiliency, representation, and redundancy) for long-
term viability. Based on our analysis of the three factors, the red-
cockaded demonstrates some degree of stability in all three factors.
The species' viability is reduced over historical levels, but habitat
conditions and population numbers are improving. In terms of
resiliency, most of the populations are still quite small, but the vast
majority are stable or even growing. The species has not lost any
representative populations since the 2003 revised recovery plan, and
while a few ecoregions still only contain one or two populations, most
of these populations are stable or growing. Finally, there is a fair
degree of redundancy within ecosystems across the range of the species,
although, again, most of these populations are still quite small and
are isolated from each other. The improving viability of the red-
cockaded woodpecker has been largely due to intensive, extensive
management, including actions immediately after large storm events to
offset cavity loss and reduce hazardous fuels. Without this
intervention, many populations, especially the low and very low
resilience populations, likely would have been extirpated.
Future Conditions
Our analysis of stressors and risk factors, as well as the past,
current, and future influences on what the red-cockaded woodpecker
needs for long-term viability, revealed that the primary predictor of
future viability of the species is the continuation of active
management (including cavity management, midstory treatment such as
prescribed fire, and translocation efforts).
[[Page 63486]]
We assessed future red-cockaded woodpecker population growth,
population size (active clusters), and resiliency by first modeling
past trends and variation in population size of demographically
delineated populations as affected by factors including management
treatments (e.g., number of artificial cavities, recruitment clusters,
birds received by translocations, and frequency of prescribed fire and
mid-story hardwood control), dominant pine species, the density of
active clusters, and parameters to account for unexplained sources of
variation to population size by this procedure (USFWS 2020, chapter 6
and appendix 2). We obtained historical information for 87
demographically delineated populations and were also able to
extrapolate missing data for certain populations by imputation with an
expectation-maximization algorithm (USFWS 2020, appendix 1).
Populations were separately modeled as small (6 to 29 clusters), medium
(30 to 75 clusters), and large (more than 75 clusters) classes.
Populations with fewer than six active clusters were not modeled
because of high variation in growth rates.
For past growth rate of small populations, the most important
variables were the number of new recruitment clusters, number of new
artificial cavities in previously existing clusters (cavity
management), midstory treatments by prescribed fire or mechanical
methods, number of red-cockaded woodpeckers translocated into the
population, and dominant pine type. Translocation had the greatest
positive effect on growth of any management technique. For medium
populations, recruitment clusters and midstory treatments by prescribed
fire were significant management covariates. The best model for large
populations included recruitment clusters, cavity management, and
spatial configuration of active clusters. In all cases, effects of
recruitment clusters, cavity management, midstory treatment, and
translocation were positive.
We then used the best assessed future growth and conditions for
each red-cockaded woodpecker population to assess viability under four
future 25-year management scenarios: Low management, medium management,
high management, and the ``Manager's Expectation.'' In the Manager's
Expectation scenario, we elicited estimates for red-cockaded woodpecker
conservation management treatments (e.g., number of artificial
cavities, number of recruitment clusters, midstory treatments,
prescribed fire frequency, translocation, etc.) from property
biologists, foresters, and managers.
For the low management scenario, values for each management
covariate (e.g., cavity management, prescribed fire treatments, number
of recruitment clusters, midstory hardwood treatment, translocation)
were set to zero. However, this scenario does not reflect no
management, but rather, the absence of management techniques specific
to red-cockaded woodpeckers and instead a reliance on ecosystem
management. Thus, some baseline habitat management, which would
indirectly provide some nesting and foraging habitat, would be expected
under the low management scenario. However, because most of the past
populations for which we had sufficient data have been actively managed
more aggressively than this scenario, we were unable to accurately
model this type of minimal baseline habitat management. Therefore,
future simulated population growth in the low management scenario is
probably overestimated. Management covariate parameters for the medium
management scenario assume the average of the past parameters employed
to conserve red-cockaded woodpeckers over the past 20 years will
continue into the future. For the high management scenario, management
treatments for simulated populations reflect the parameter values in
the 90th percentile of all past population treatments, as if
populations were more intensely and extensively managed. The high
management scenario thus represents projections of what might
potentially be achieved should the species be systematically managed
more intensively across its range than it has been in the past. The
Manager's Expectation scenario was based on what the experts, described
above, thought was the most likely annual future number of recruitment
clusters, artificial cavities, prescribed fire treatments, and other
management parameters at 5-year intervals for a 25-year period.
We chose to project 25 years into the future because the
combination of species' response to natural factors and management and
the ability of managers to accurately predict future management
treatments becomes highly uncertain at longer intervals. The red-
cockaded woodpecker is a conservation-reliant species of naturally
fire-dependent, open, and mature to old southern pine forests. These
forest conditions do not currently occur without management due to the
history of fire-exclusion, incompatible forest management, and other
land uses. Planning and successfully implementing management and
treatments for each active cluster and population requires extensive
resources that are difficult for managers to accurately predict for
longer than 25 years. In addition to a population's response to
management, there is natural variation in nest success, number of
fledglings, survival of young-of-year and adults, and cooperative
breeding dynamics with replacement of adult breeders by other birds
dispersing from other territories. In turn, this affects annual
variation in population size (active clusters) and patterns of
population growth or decline. Simulations of future population
conditions under different management scenarios included effects of
some management treatments, though not all, as model parameters.
However, effects of these management treatment parameters did not
account for all sources of annual variation affecting population size
that still occurred in the model and simulations. Because of the
variation in future simulated population size at 25 years (USFWS 2020,
appendix 2), future estimates of population size after 25 years are
more uncertain.
Table 1 summarizes the model outputs for the four scenarios at the
end of the 25-year simulation period. Data from 106 of the 124 current
populations were available for future simulations. Of those 106
populations, initial populations with fewer than 6 active clusters were
not simulated unless they demographically merged with other populations
to create new, larger populations during the 25-year period. In
addition, the total number of simulated future populations at year 25
are not equal among management scenarios because of the different
number of initial populations that demographically merge to establish
new populations. In other words, a lower number of populations at the
end than the start for each scenario does not mean that all those
populations were extirpated, rather some of the populations increased
and merged to create new, larger populations. Therefore, the initial
starting number of populations, and predicted number of populations at
the end of the simulation period, varied. We also compare the results
of current and future population resiliency classes as percentages in
this proposed rule rather than absolute numbers because of this
variation. Furthermore, although the initial starting numbers varied
for each of the scenarios for the reasons discussed above, we present
the current condition of the 124 demographic populations as the
starting place for each of these scenarios. The current condition
(Past-to-Current in Table 1) for these
[[Page 63487]]
populations are: 57.3 percent have very low resiliency, 29.8 percent
have low, 8.1 percent have moderate, 2.4 percent have high, and 2.4
percent have very high. For more details on the model, please see the
SSA report (USFWS 2020, pp. 130-136, appendix 1, appendix 2).
Table 1--Resilience Summary Based on Current Condition and Population Simulations Under 4 Future Management
Scenarios
----------------------------------------------------------------------------------------------------------------
Population resilience category percentages
Model series/scenario -------------------------------------------------------------------------------
Very low Low Moderate High Very high
----------------------------------------------------------------------------------------------------------------
Past-to-Current................. 57.3 29.8 8.1 2.4 2.4
Future Low...................... 61.7 14.8 11.1 6.2 6.2
Future Medium................... 25.0 45.2 15.5 8.3 6.0
Future High..................... 22.2 39.5 21.0 11.1 6.2
Future Manager's................ 28.6 42.9 14.3 8.3 5.9
----------------------------------------------------------------------------------------------------------------
Low management scenario: At the end of the 25-year simulation
period, the predicted resiliency for the resulting 81 simulated
demographic populations are: 6.2 percent of populations (5) very high;
6.2 percent (5) high; 11.1 percent (9) moderate; 14.8 percent (12) low;
and 61.7 percent (50) very low. The low management scenario projects a
modest increase in the percentage of current populations of moderate to
very high resiliency from about 13 percent (16) to about 24 percent
(19) of the 81 simulated populations compared to current conditions,
but the majority of the populations that currently have low resiliency
decline sufficiently to transition into the very low resiliency
category. The projected outcome of this scenario clearly demonstrates
the dependence of red-cockaded woodpecker population resiliency on
intensive, species-specific management.
Medium management scenario: At the end of the 25-year simulation
period, the predicted resiliency for the resulting 84 simulated
demographic populations are: 6.0 percent of populations (5) very high;
8.3 percent (7) high; 15.5 percent (13) moderate; 45.2 percent (38)
low; and 25.0 percent (21) very low. The medium management scenario
projected a more substantial increase in the percentage of populations
of moderate to very high resiliency from about 13 percent (16) to about
30 percent (25) of the populations. At the other end, the percentage of
low and very low resiliency populations decreased.
High management scenario: At the end of the 25-year simulation
period, the predicted resiliency for the resulting 81 demographic
populations are as follows: 6.2 percent of populations (5) very high;
11.1 percent (9) high; 21.0 percent (17) moderate; 39.5 percent (32)
low; and 22.2 percent (18) very low. The high management scenario
projected an even more substantial increase in the percentage of
populations of moderate to very high resiliency, increasing to about 38
percent (31) of the populations. However, the land base available for
conservation has a substantial effect on the growth of these
populations under this scenario. For example, none of the populations
with low or very low resiliency in this scenario has the carrying
capacity on their respective managed properties to transition to a
higher resiliency category, regardless of the intensive management
reflected in this scenario. Thus, there are 50 red-cockaded woodpecker
populations that, in the absence of acquisition of additional habitat
for population expansion, will always remain small regardless of the
management efforts.
Manager's Expectation scenario: At the end of the 25-year
simulation period, the predicted resiliency for the resulting 84
demographic populations are: 5.9 percent of the populations (5) very
high; 8.3 percent (7) high; 14.3 percent (12) moderate; 42.9 percent
(36) low; and 28.6 percent (24) very low. The results are very similar
to the medium management scenario.
Future Representation and Redundancy of the Species: Under all
management scenarios, five populations in four ecosystems are predicted
to have very high resiliency (East Gulf Coastal Plain (2), Sandhills
(1), Mid-Atlantic Coastal Plain (1), and South Atlantic Coastal Plain
(1)). Under the Manager's Expectation and medium management scenarios,
seven populations in five ecosystems are considered to have high
resiliency (East Gulf Coastal Plain (2), South Atlantic Coastal Plain
(1), Sandhills (2), Upper West Gulf Coastal Plain (1), and West Gulf
Coastal Plain (1)). Also, compared to current conditions, the greater
number of future high and very high resiliency populations are more
widely distributed among ecoregions and include the western geographic
range; however, over the whole range of the woodpecker, the occurrence
of high and very high resiliency populations is most concentrated in
the East Gulf Coastal Plain and Sandhills ecoregions.
Only two ecoregions (Cumberland Ridge and Valley and Gulf Coast
Prairie and Marshes) have no simulated populations of moderate to very
high resiliency in the Manager's Expectation, medium management, and
high management scenarios, compared to six ecoregions (Florida
Peninsula, Ouachita Mountains, Cumberland Ridge and Valley, Piedmont,
Gulf Coast Prairie and Marshes, and Mississippi River Alluvial Plain)
that currently do not have moderate to very high resiliency
populations. The one current population in the Mississippi River
Alluvial Plain ecoregion was not simulated in the future. In the low
management scenario, four ecoregions (Cumberland Ridge and Valley, Gulf
Coast Prairie and Marshes, Ouachita Mountains, and Piedmont) that
currently only have low or very low resiliency populations are not
projected to gain any moderate to very high resiliency populations at
25 years.
Summary: The total number of simulated populations at 25 years
varied slightly among the management scenarios because of a different
number of initial populations that demographically merged during
simulations to establish new and larger populations. Results of the
Manager's Expectation and medium management scenarios were most
similar, while the low management and high management scenarios
represented more extreme future resiliency conditions. These
simulations, particularly for the low management and high management
scenarios, illustrate the extent to which the red-cockaded woodpecker
is a conservation-reliant species that responds positively or
negatively to management, and how successful management can sustain
small populations with low or very low resiliency. In all scenarios,
most populations at year 25 were still in the
[[Page 63488]]
very low, low, and moderate resiliency categories. However, the
majority of populations were projected to be stable or increasing in
all but the low management scenario, highlighting how successful
management can sustain even small populations, albeit with a greater
inherent risk in response to poor or insufficient management. The low
management scenario illustrates that without adequate species-level
management, in contrast to ecosystem management alone, very little
increase in the number of moderate to very high resiliency populations
can be expected and small populations of low or very low resiliency are
unlikely to persist. The high management scenario represents the limit
of what can be accomplished given the current land base and carrying
capacity to support populations. However, management at current levels,
as represented by the medium management scenario, further increases the
number of moderate to very high resiliency populations and projects
that small populations can be preserved. In addition, at current (or
greater) levels of future management, redundancy and representation are
expected to improve significantly in response to increasing
populations. Because, if we reclassify the red-cockaded woodpecker as a
threatened species, the woodpecker would remain protected under the
Act, current levels of management are expected to continue into the
future.
Recovery and Recovery Plan Implementation
The original red-cockaded woodpecker recovery plan was first issued
by the Service on August 24, 1979. A first revision was issued on April
11, 1995, and the second, and current, revision on January 27, 2003.
The 2003 recovery plan provided management guidelines fundamental to
the conservation and recovery of red-cockaded woodpeckers. The Service
continues to strongly encourage the application of these guidelines to
the management of woodpecker populations on public and private lands.
As explained in Conservation Measures that Benefit the Species, above,
implementation of the recovery plan has been carried out through the
incorporation of management guidelines into various Federal and State
land management plans. In addition to the management guidelines, the
2003 recovery plan provides guidelines to private landowners to follow
on private lands occupied by red-cockaded woodpeckers. The 2003
recovery plan provides guidelines for installing artificial cavities;
management of cavity trees and clusters; translocation; silviculture;
and prescribed fire under the management guidelines, and guidelines for
managing foraging habitat on private lands are provided under the
private land guidelines. After the issuance of the 2003 recovery plan,
two additional sets of foraging guidelines were developed (USFWS 2005,
entire). As described in the 2005 guidance, the recovery standard for
good quality foraging habitat is intended for recovery management to
sustain and increase populations.
The recovery plan contains both downlisting and delisting criteria.
The recovery criteria in the 2003 recovery plan are based on 39
designated populations in different viability size classes. Although
these were not the only red-cockaded woodpecker populations known at
the time, they were selected as recovery populations because of
anticipated future management by their management agencies or entities,
the estimated future capacity of the properties, and their geographic
distribution within and among recovery units (e.g., ecoregions). Each
of these designated populations have a future population size objective
with various potential roles toward achieving the downlisting and
delisting criteria in the recovery plan. The populations are
distributed within 11 recovery units or ecoregions that represent broad
patterns of ecological and potential genetic variation and that enhance
immigration to reduce the loss of genetic variation (e.g.,
representation), with multiple populations to reduce risks of
catastrophic impacts of periodic hurricanes, and adverse stochastic
demographic, environmental, and genetic factors (e.g., redundancy). The
39 designated recovery populations are either primary core (13),
secondary core (10), or essential support (16), according to recovery
population size potential breeding group (PBG) objectives. As described
above, a PBG is a cluster with a potentially breeding adult male and
female, with or without adult helpers or successfully fledging young.
An active cluster can be either a PBG or a single territorial bird.
Further discussion of these terms, along with the rationale for each
delisting and downlisting criterion, can be found in the recovery plan
(USFWS 2003, pp. 140-145). Further detail on the specific populations
required to meet each criterion can also be found in the recovery plan.
Downlisting may be achieved by having a total of 20 designated
recovery populations fulfilling the following criteria. Qualifying
populations with the largest population sizes are listed for each
criterion when a specific population is not required. No particular
population may satisfy more than one criterion.
Downlisting Criterion 1: There is one stable or increasing
population of 350 PBGs (400 to 500 active clusters) in the Central
Florida Panhandle. This criterion has been met. In our 2006 5-year
review (USFWS 2006), we identified that part of one of the five
properties (Apalachicola Ranger District-Apalachicola National Forest)
comprising the Central Florida Panhandle Primary Core population alone
had 451 PBGs. Now, there are 909 active clusters representing about 809
PBGs for the Central Florida Panhandle Primary Core population. The
average growth rate for this population is increasing.
Downlisting Criterion 2: There is at least one stable or
increasing population containing at least 250 PBGs (275 to 350 active
clusters) in each of the six following recovery units: Sandhills, Mid-
Atlantic Coastal Plain, South Atlantic Coastal Plain, West Gulf Coastal
Plain, Upper West Gulf Coastal Plain, and Upper East Gulf Coastal
Plain. This criterion has been partially met. Currently, four of the
six recovery units have a population that has reached the minimum
required size to fulfill this criterion (Sandhills, North Carolina
Sandhills East Primary Core; Mid-Atlantic Coastal Plain, Francis Marion
Primary Core; South Atlantic Coastal Plain, Fort Stewart Primary Core;
and Upper West Gulf Coastal Plain, Sam Houston Primary Core). The
Vernon-Fort Polk primary core with 223 active clusters and 185 PBGs
(West Gulf Coastal Plain) and Bienville Primary Core with 162 active
clusters and 144 PBGs (Upper East Gulf Coastal Plain) have not
fulfilled this criterion.
Downlisting Criterion 3: There is at least one stable or
increasing population containing at least 100 PBGs (110 to 140 active
clusters) in each of the four following recovery units: Mid-Atlantic
Coastal Plain, Sandhills, South Atlantic Coastal Plain, and East Gulf
Coastal Plain. This criterion has been fulfilled by the following
populations: Coastal North Carolina Primary Core (235 active clusters,
209 PBGs, Mid-Atlantic Coastal Plain), South Carolina Sandhills
Secondary Core (237 active clusters, 211 PBGs, Sandhills), Osceola/
Okefenokee Primary Core (212 active clusters, 189 PBGs, South Atlantic
Coastal Plain), and Eglin Primary Core (526 active clusters, 462 PBGs,
East Gulf Coastal Plain).
Downlisting Criterion 4: There is at least one stable or
increasing population containing at least 70 PBGs (75 to 100 active
clusters) in each of the following
[[Page 63489]]
four recovery units: Cumberland Ridge and Valley, Ouachita Mountains,
Piedmont, and Sandhills. In addition, in the Mid-Atlantic Coastal
Plain, the Northeast North Carolina/Southeast Virginia Essential
Support Population is stable or increasing and contains at least 70
PBGs (75 to 100 active clusters). This criterion has been partially met
by two populations: North Carolina Sandhills West Essential Support
(187 active clusters, 166 PBGs, Sandhills) and Oconee/Piedmont
Secondary Core (85 active clusters, 76 PBGs, Piedmont). Three of the
five populations presently do not meet the required population size:
Ouachita Secondary Core (73 active, 69 PBGs, Ouachita Mountains),
Northeast North Carolina/Southeast Virginia Essential Support (68
active clusters, 61 PBGs, Mid-Atlantic Coastal Plain), and Talladega/
Shoal Creek Essential Support (45 active clusters, 43 PBGs, Cumberland
Ridge and Valley). The Ouachita Secondary Core population in the
Ouachita Mountains recovery unit, with an estimated 69 PBGs, is on the
threshold of achieving the size criterion.
Downlisting Criterion 5: There are at least four
populations each containing at least 40 PBGs (45 to 60 active clusters)
on State and/or Federal lands in the South/Central Florida Recovery
Unit. This criterion has been met by four populations: Big Cypress
Essential Support, (88 active clusters, 78 PBGs); Goethe Essential
Support (63 active clusters, 52 PBGs); Ocala Essential Support (123
active clusters, 109 PBGs); Withlacoochee Citrus Tract (80 active
clusters, 78 PBGs).
Downlisting Criterion 6: There are habitat management
plans in place in each of the above populations identifying management
actions sufficient to increase the populations to recovery levels, with
special emphasis on frequent prescribed burning during the growing
season. This criterion has been mostly met. These 20 populations occur
on properties owned by 6 Federal and 5 State agencies, and 2
nongovernmental entities. Agency management plans meet this criterion
for 18 of these 20 populations. The remaining two populations, the Big
Cypress Essential Support population and the Northeast North Carolina/
Southeast Virginia Essential Support population, do not currently
fulfill this management criterion for various reasons. The Big Cypress
Essential Support population, on the Big Cypress National Preserve, has
exceeded its recovery population size objective, and while the Preserve
management plan doesn't mention species-specific management activities,
appropriate habitat management is occurring along with a limited
application of artificial cavity installation. In addition, because of
the current distribution and number of natural cavities and continued
excavation of natural cavities on the Preserve by woodpeckers, there
may be sufficient old pines for natural cavity excavation to sustain
this population even if the Preserve does not manage for artificial
cavities in the future. The Northeast North Carolina/Southeast Virginia
Essential Support population is spread over five properties with a
mixture of management plans and management activities. For example, The
Nature Conservancy does not have a management plan for the Piney Grove
Preserve in Virginia; however, this population segment is intensively
and successfully managed. Red-cockaded woodpeckers on the remaining
four properties inhabit ecologically unique conditions that limit the
application of the standard management techniques, and a management
plan does not exist for one of these properties. In addition, the
available management plans for these 20 populations include none to
minimal provisions for post-hurricane or post-storm management,
although such management generally does occur when needed.
Delisting can be achieved with a minimum 29 populations that
fulfill required size criteria in, when required, specific recovery
units. As with downlisting, a population that fulfills one criterion
cannot be applied to meet another criterion. All of these populations
must exist with suitable natural cavities and without dependence on
continued artificial cavity management. Sufficient management and
monitoring plans must be available by respective management agencies to
continue to sustain these populations. Finally, the recovery plan
indicates that only 11 of the 13 primary core populations must meet the
delisting criteria because at any time 2 may be recovering from adverse
impacts of hurricanes. Similarly, the requirement for secondary core
populations is 9 of 10, and the requirement for essential support
populations is 9 of 16 to allow for hurricane impacts.
Of the 29 populations required for delisting, only 12 (41.4
percent) currently meet delisting population size requirements. Of the
following four recovery criteria with delisting population size
requirements, Delisting Criterion 3, concerning populations in the
South/Central Florida recovery unit, is the only criterion in which all
populations have attained minimum size attributes. All of these 29
populations currently remain dependent on artificial cavities.
Delisting Criterion 1: There are 10 populations of red-
cockaded woodpeckers that each contain at least 350 PBGs (400 to 500
active clusters), and one population that contains at least 1,000 PBGs
(1,100 to 1,400 active clusters), from among 13 designated primary core
populations, and each of these 11 populations is not dependent on
continuing installation of artificial cavities to remain at or above
this population size. This criterion has not been met. Five of the 11
primary core populations in this criterion have met or positively
exceeded the minimum population size, but all populations remain
dependent on artificial cavities and no population has reached at least
1,000 PBGs: North Carolina Sandhills East Primary Core (520 active
clusters, 514 PBGs), Fort Stewart Primary Core (504 active clusters,
480 PBGs), Eglin Primary Core (526 active clusters, 462 PBGs), Francis
Marion Primary Core (465 active clusters, 414 PBGs), Fort Benning
Primary Core (400 active clusters, 387 PBGs) The Central Florida
Primary Core is the closest to achieving the 1,000 PBG goal (858 active
clusters, 764 PBGs). In addition, the following populations have not
yet met the goal of 350 PBGs: Sam Houston Primary Core (289 active
clusters, 257 PBGs), Coastal North Carolina Primary Core (235 active
clusters, 209 PBGs), Osceola/Okefenokee Primary Core (212 active
clusters, 189 PBGs), Vernon/Fort Polk Primary Core (223 active
clusters, 199 PBGs), and Bienville Primary Core (162 active clusters,
144 PBGs)
Delisting Criterion 2: There are nine populations of red-
cockaded woodpeckers that each contain at least 250 PBGs (275 to 350
active clusters) from among 10 designated secondary core populations,
and each of these nine populations is not dependent on continuing
installation of artificial cavities to remain at or above this
population size. This criterion has not been met. None of the 10
designated secondary core populations harbors 250 PBGs, which range in
size from 69 PBGs in the Ouachita Secondary Core to 211 PBGs in the
South Carolina Sandhills Secondary Core, and all of these populations
remain dependent on artificial cavities.
Delisting Criterion 3: There are at least 250 PBGs (275 to
350 active clusters) distributed among designated essential support
populations in the South/Central Florida Recovery Unit, and six of
these populations (including at least two of the following: Avon Park,
Big Cypress, and Ocala) exhibit a minimum population size of 40 PBGs
[[Page 63490]]
that is independent of continuing artificial cavity installation. This
criterion has been partially met. The size of the six populations and
total number of PBGs has been fulfilled: Babcock/Webb Essential Support
(46 active clusters, 42 PBGs), Big Cypress Essential Support (88 active
clusters, 78 PBGs), Goethe Essential Support (63 active clusters, 52
PBGs), Ocala Essential Support (123 active clusters, 109 PBGs), Three
Lakes Essential Support (48 active clusters, 45 PBGs), and
Withlacoochee Citrus Tract Essential Support (80 active clusters, 78
PBGs). All populations continue to be dependent on artificial cavities.
Delisting Criterion 4: There is one stable or increasing
population containing at least 100 PBGs (110 to 140 active clusters) in
northeastern North Carolina and southeastern Virginia, the Cumberland
Ridge and Valley recovery unit (Talladega/Shoal Creek), and the
Sandhills recovery unit (North Carolina Sandhills West), and these
populations are not dependent on continuing artificial cavity
installation to remain at or above this population size. This criterion
has been partially met. Of these three populations, the size objective
of the North Carolina Sandhills West Essential Support (187 active
clusters, 166 PBGs) has been fulfilled, while the Northeast North
Carolina/Southeast Virginia Essential Support (73 active clusters, 65
PBGs) and the Talladega/Shoal Creek Essential Support (42 active
clusters, 32 PBGs) have not achieved the population size objective.
Also, all three populations continue to be dependent on artificial
cavities.
Delisting Criterion 5: For each of the populations meeting
the above size criteria, responsible management agencies shall provide
(1) a habitat management plan that is adequate to sustain the
population and emphasizes frequent prescribed burning, and (2) a plan
for continued population monitoring. This criterion has not been met.
Once the populations required for delisting have achieved population
size objectives and are not dependent on artificial cavities, this
criterion requires adequate future management plans to continue to
sustain habitat and populations with active habitat management and
monitoring. Such management is essential to ensure populations do not
decline and the species falls to an endangered or threatened status.
These management and monitoring plans would represent post-delisting
commitments by respective management entities for this conservation-
reliant species. Various management plans currently exist for these
populations, but not as continued commitments upon recovery and
delisting of the red-cockaded woodpecker.
Summary
Since the recovery plan was last revised in 2003, the number of
red-cockaded woodpecker active clusters has increased from 5,627 to
over 7,800 (USFWS 2020, entire). The population size objectives to meet
applicable downlisting criteria have been met for 15 of 20 designated
populations. All of these designated populations show stable or
increasing long-term population growth rates ([lambda] >= 1). However,
not all of the designated recovery populations are demographically a
single functional population as intended by the recovery plan. Nine of
the 20 designated recovery populations toward fulfilling downlisting
population size criteria consist of multiple smaller demographic
populations. Based on the largest single demographic population for a
designated recovery population, 14 of 20 designated recovery
populations have achieved downlisting population size criteria. As to
delisting criteria, because the delisting criteria all require all-
natural cavities, none of the delisting criteria have been fully met.
With continued forest management to retain and produce sufficient old
pines for natural cavity excavation, future populations would no longer
be dependent artificial cavities. Regardless, there has been
encouraging progress towards meeting the delisting criteria, as 12 of
29 demographically delineated populations corresponding to designated
recovery populations currently have achieved population sizes that meet
the delisting criteria.
While recovery plans provide important guidance to the Service,
States, and other partners on methods of minimizing threats to listed
species and measurable objectives against which to measure progress
towards recovery, they are guidance and not regulatory documents.
Revisions to the List, including downlisting or delisting a species,
must reflect determinations made in accordance with sections 4(a)(1)
and 4(b) of the Act. Section 4(a)(1) requires that the Secretary
determine whether a species is an endangered species or threatened
species due to threats to the species. Section 4(b) of the Act requires
that the determination be made ``solely on the basis of the best
scientific and commercial data available.'' Therefore, while it is
valuable to consider the progress a species has made towards meeting
downlisting or delisting criteria, the decision to reclassify an
endangered species as threatened or to delist a species due to recovery
does not rely on the recovery plan. For the red-cockaded woodpecker,
although the population objectives from the recovery plan have yet to
be reached, the primary recovery task of increasing existing
populations on Federal and State lands has been successful, and the
population growth rates indicate sufficient resiliency to stochastic
disturbances with effective management. In addition, redundancy of
moderate to very high resiliency populations suggests that risks from
future catastrophic events to overall viability is low.
Determination of Red-Cockaded Woodpecker Status
Section 4 of the Act (16 U.S.C. 1533) and its implementing
regulations (50 CFR part 424) set forth the procedures for determining
whether a species meets the definition of ``endangered species'' or
``threatened species.'' 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 a
species that is ``likely to become an endangered species within the
foreseeable future throughout all or a significant portion of its
range.'' The Act requires that we determine whether a species meets the
definition of ``endangered species'' or ``threatened species'' because
of any of the following factors: (A) The present or threatened
destruction, modification, or curtailment of its habitat or range; (B)
overutilization for commercial, recreational, scientific, or
educational purposes; (C) disease or predation; (D) the inadequacy of
existing regulatory mechanisms; or (E) other natural or manmade factors
affecting its continued existence. We must consider these same five
factors in reclassifying (e.g., changing a species status from
endangered to threatened) or delisting a species.
Status Throughout All of Its Range
Red-cockaded woodpeckers were once considered a common bird across
the southeastern United States. At the time of listing in 1970, the
species was severely threatened by lack of adequate habitat due to
historical logging, incompatible forest management, and conversion of
forests to urban and agricultural uses. Fire-maintained old growth pine
savannahs, on which the species depends, were extremely rare. What
little habitat remained was mostly degraded due to fire suppression and
silvicultural practices that hindered the development of older, larger
trees
[[Page 63491]]
needed by the species for cavity development and foraging. Even after
listing, the species continued to decline. However, new restoration
techniques, such as artificial cavities, along with changes in
silvicultural practices and wider use of prescribed fire to recreate
open pine parkland structure, has led to stabilization of the species'
viability and resulted in an increase in the number and distribution of
populations. While most populations are still small and vulnerable to
stochastic events, the majority of populations for which we were able
to determine trends are stable or increasing ([lambda] = 1.0 or
greater), and only 13 percent are declining. There are currently at
least 124 populations across 13 ecoregions.
When we modeled future scenarios, the majority of populations were
projected to be stable or increasing in all but the low management
scenario, highlighting how successful management can sustain even small
populations, albeit with a greater inherent risk in response to poor or
insufficient management. Future management at current and recent past
levels, as represented by the medium management scenario, further
increases the number of moderate to very high resiliency populations
and projects that small populations can be preserved. In addition, at
current (or greater) levels of management, redundancy and
representation are expected to significantly improve because most
populations are expected to increase in size across the ecoregions.
The Act does not define the term ``foreseeable future,'' which
appears in the statutory definition of ``threatened species.'' Our
implementing regulations at 50 CFR 424.11(d) set forth a framework for
evaluating the foreseeable future on a case-by-case basis. The term
foreseeable future extends only so far into the future as the Services
can reasonably determine that both the future threats and the species'
responses to those threats are likely. In other words, the foreseeable
future is the period of time in which we can make reliable predictions.
``Reliable'' does not mean ``certain''; it means sufficient to provide
a reasonable degree of confidence in the prediction. Thus, a prediction
is reliable if it is reasonable to depend on it when making decisions.
We determined the foreseeable future to be 25 years from present,
because it is a reasonable timeframe in which we can reasonably
estimate population responses to natural factors and management. As
discussed under Future Conditions above, in the SSA report, future
population conditions under different management scenarios were
simulated and modeled to 25 years into the future, and we determined
that we can rely on the timeframe presented in the scenarios and
predict how future stressors and management will affect the red-
cockaded woodpecker. It is the timeframe in which the 95 percent
confidence intervals around the future scenario modeling have
reasonable bounds of uncertainty. This timeframe, given the species'
life history, is also sufficient to identify any effects of stressors
or conservation measures on the red-cockaded woodpecker's viability at
both population and species levels. Finally, 25 years represents 4 to 5
generations of red-cockaded woodpecker, which would be sufficient time
for population-level impacts from stressors and management to be
detected.
The red-cockaded woodpecker still faces a variety of stressors due
to inadequate habitat across its range, but these are now mostly legacy
stressors resulting from historical forest conversion and fire
suppression practices rather than current habitat loss. These legacy
stressors include insufficient numbers of cavities and suitable,
abundant old pines for natural cavity excavation; habitat fragmentation
and its effects on genetic variation, dispersal, and connectivity to
support demographic populations; lack of suitable foraging habitat for
population growth and expansion; and small populations. The species
also still faces stress from natural events, especially hurricanes.
Immediate management response after natural disasters is key to
preventing cluster abandonment in all populations and is critical to
keeping smaller populations from being extirpated altogether. More
broadly, this species remains conservation-reliant throughout its
range. Red-cockaded woodpeckers rely on, and will continue to rely
almost completely on, active management by property managers and
biologists to install artificial cavities and manage clusters, restore
additional habitat and strategically place recruitment clusters to
improve connectivity, control the hardwood midstory through prescribed
fire and silvicultural treatments, and translocate individuals to
augment small populations and minimize loss of genetic variation. In
addition, emergency response after severe storms and other natural
disasters will continue to be necessary to prevent cluster abandonment
and minimize wildfire fuel loading. However, both the emergency
response and routine management are well-understood and are currently
being implemented across the range of the woodpecker. In addition, much
of the red-cockaded woodpecker's currently occupied habitat is now
protected under various management plans. As a conservation-reliant
species, securing management commitments for the foreseeable future
would ensure that red-cockaded woodpecker populations grow or are
maintained. This conclusion is reinforced by the future scenario
simulations, which indicate that management efforts equal to or greater
than current levels will further increase the number of moderate to
very high resiliency populations and preserve small populations.
After evaluating the threats to the species and assessing the
cumulative effect of the threats under the section 4(a)(1) factors, we
find that, while the stressors identified above continue to negatively
affect the red-cockaded woodpecker, new restoration techniques and
changes in silvicultural practices has led to stabilization of the red-
cockaded woodpecker's viability and even resulted in a substantial
increase in the number and distribution of populations. Thirteen
percent of all current red-cockaded woodpecker clusters are within
moderate, high, or very highly resilient populations, and populations
are spread across multiple ecoregions, providing for redundancy and
representation. However, the species remains highly dependent on
continued conservation management and the majority of populations
contain small numbers of clusters. Thus, after assessing the best
available information, we conclude that the red-cockaded woodpecker is
not in danger of extinction throughout all of its range; however, it is
likely to become in danger of extinction within the foreseeable future
throughout all of its range.
However, if ongoing and future proactive red-cockaded woodpecker
management were assured, the remaining negative factors identified
above could be ameliorated. Therefore, in this proposed rule, we ask
the public to provide comments regarding the adequacy of existing
management plans for the conservation of the red-cockaded woodpecker,
and the likelihood that those plans will continue to be implemented
into the future (see Information Requested, above).
Status Throughout a Significant Portion of Its Range
Under the Act and our implementing regulations, a species may
warrant listing if it is in danger of extinction or likely to become so
in the foreseeable future throughout all or a significant portion of
its range. The court in Center
[[Page 63492]]
for Biological Diversity v. Everson, 2020 WL 437289 (D.D.C. Jan. 28,
2020) (Center for Biological Diversity), vacated the aspect of the 2014
Significant Portion of its Range Policy that provided that the Services
do not undertake an analysis of significant portions of a species'
range if the species warrants listing as threatened throughout all of
its range. Therefore, we proceed to evaluating whether the species is
endangered in a significant portion of its range--that is, whether
there is any portion of the species' range for which both (1) the
portion is significant; and, (2) the species is in danger of extinction
in that portion. Depending on the case, it might be more efficient for
us to address the ``significance'' question or the ``status'' question
first. We can choose to address either question first. Regardless of
which question we address first, if we reach a negative answer with
respect to the first question that we address, we do not need to
evaluate the other question for that portion of the species' range.
Following the court's holding in Center for Biological Diversity,
we now consider whether there are any significant portions of the
species' range where the species is in danger of extinction now (i.e.,
endangered). In undertaking this analysis for the red-cockaded
woodpecker, we choose to address the status question first--we consider
information pertaining to the geographic distribution of both the
species and the threats that the species faces to identify any portions
of the range where the species is endangered.
For the red-cockaded woodpecker, we considered whether the threats
are geographically concentrated in any portion of the species' range at
a biologically meaningful scale. We examined the following stressors:
Natural disasters such as hurricanes and vulnerability due to small
population sizes and fragmentation. Other identified stressors, such as
inadequate habitat, are uniform throughout the red-cockaded
woodpecker's range. Although hurricanes may impact populations across
the red-cockaded woodpecker's range, return intervals are shorter and
impacts are more pronounced in near-coastal populations compared to
inland populations (USFWS 2020, pp. 119-122). Furthermore, while small
populations occur throughout the species' range, we found that there is
a concentration of threats from the combination of both hurricanes and
small population sizes in the Florida Peninsula, West Gulf Coastal
Plain, and the southernmost near-coastal extension of the Upper West
Gulf Coastal Plain ecoregions. This means these portions of the range
together may constitute a portion of the species range where the
species could have a different status because the threats are not
uniform throughout the range and the species may face a greater level
of imperilment where threats are concentrated.
Having determined that these are portions of the range where the
species may be in danger of extinction, we next examined the question
of whether these portions may be significant. In undertaking this
analysis for the red-cockaded woodpecker, we considered whether the
portions of the species' range identified above may be significant
based on their biological importance to the overall viability of the
species. Although these areas contain 49 of the 124 demographic
populations identified in the SSA (40 percent), only three populations
currently have moderate resiliency and the remaining populations
demonstrate low and very low resiliency. One of the moderate
populations is projected to increase to high resiliency in the low
management scenario and two of three moderate populations are projected
to increase to high resiliency in the remaining future scenarios.
However, the majority of the populations remain in the low or very low
resiliency category and do not contribute significantly, either
currently or in the foreseeable future, to the species' total
resiliency at a biologically meaningful scale compared to other
representative areas. Although the populations in these ecoregions are
relatively small, the current and future redundancy suggests that
hurricanes would be unlikely to extirpate red-cockaded woodpeckers in
an entire ecoregion, thus overall representation should not be
impacted. Even if some populations in these portions were to become
extirpated, the species would maintain sufficient levels of resiliency,
representation, and redundancy in the rest of these ecoregions and in
other ecoregions across its range, supporting the species' viability as
a whole. Thus, we do not find that these are portions of the red-
cockaded woodpecker's range that may be significant.
In conclusion, we do not find any portions of the species' range
may be significant based on their biological importance to the overall
viability of the red-cockaded woodpecker. Therefore, no portion of the
species' range provides a basis for determining that the species is in
danger of extinction in a significant portion of its range, and we
determine that the species is likely to become in danger of extinction
within the foreseeable future throughout all of its range. This is
consistent with the courts' holdings in Desert Survivors v. Department
of the Interior, No. 16-cv-01165-JCS, 2018 WL 4053447 (N.D. Cal. Aug.
24, 2018), and Center for Biological Diversity v. Jewell, 248 F. Supp.
3d, 946, 959 (D. Ariz. 2017).
Determination of Status
Our review of the best available scientific and commercial
information indicates that the red-cockaded woodpecker meets the
definition of a threatened species. Therefore, we propose to reclassify
the red-cockaded woodpecker as a threatened species in accordance with
sections 3(20) and 4(a)(1) of the Act.
Effects of This Proposed Rule
This proposal, if made final, would revise 50 CFR 17.11(h) to
reclassify the red-cockaded woodpecker from endangered to threatened.
This reclassification is due to the substantial efforts made by
Federal, State, and private landowners to recover the species. Adoption
of this proposed rule would formally recognize that this species is no
longer in danger of extinction throughout all or a significant portion
of its range and, therefore, does not meet the definition of an
endangered species. However, the species is still impacted by the
effects of habitat loss and degradation, habitat fragmentation, and
small populations such that it meets the Act's definition of a
threatened species.
Proposed Section 4(d) Rule
Background
Section 4(d) of the Act contains two sentences. The first sentence
states that the ``Secretary shall issue such regulations as he deems
necessary and advisable to provide for the conservation'' of species
listed as threatened. The U.S. Supreme Court has noted that very
similar statutory language like ``necessary and advisble'' demonstrates
a large degree of deference to the agency (see Webster v. Doe, 486 U.S.
592 (1988)). Conservation is defined in the Act to mean ``the use of
all methods and procedures which are necessary to bring any endangered
species or threatened species to the point at which the measures
provided pursuant to [the Act] are no longer necessary.'' Additionally,
the second sentence of section 4(d) of the Act states that the
Secretary ``may by regulation prohibit with respect to any threatened
species any act prohibited under section 9(a)(1), in the case of fish
or wildlife, or 9(a)(2), in the case of plants.'' Thus, regulations
promulgated under section 4(d) of the Act provide the Secretary with
wide latitude of discretion to select
[[Page 63493]]
appropriate provisions tailored to the specific conservation needs of
the threatened species. The statute grants particularly broad
discretion to the Service when adopting the prohibitions under section
9.
The courts have recognized the extent of the Secretary's discretion
under this standard to develop rules that are appropriate for the
conservation of a species. For example, courts have upheld rules
developed under section 4(d) as a valid exercise of agency authority
where they prohibited take of threatened wildlife or included a
limitated taking prohibition (see Alsea Valley Alliance v.
Lautenbacher, 2007 U.S. Dist. Lexis 60203 (D. Or. 2007); Washington
Environmental Council v. National Marine Fisheries Service, 2002 U.S.
Dist. Lexis 5432 (W.D. Wash. 2002)). Courts have also upheld 4(d) rules
that do not address all the threats a species faces (see State of
Louisiana v. Verity, 853 F.2d 322 (5th Cir. 1988)). As noted in the
legislative history when the Act was initially enacted, ``once an
animal is on the threatened list, the Secretary has an almost infinite
number of options available to him with regard to the permitted
activities for those species. He may, for example, permit taking, but
not importation of such species, or he may choose to forbid both taking
and importation but allow the transportation of such species'' (H.R.
Rep. No. 412, 93rd Cong., 1st Sess. 1973).
Exercising its authority under section 4(d) of the Act, the Service
has developed a proposed 4(d) rule that is designed to address the red-
cockaded woodpeckers' specific threats and conservation needs. Although
the statute does not require the Service to make a ``necessary and
advisable'' finding with respect to the adoption of specific
prohibitions under section 9, we find that this rule as a whole
satisfies the requirement in seciton 4(d) of the Act to issue
regulations deemed necessary and advisable to provide for the
conservation of the red-cockaded woodpecker. As discussed above, the
Service has concluded that the red-cockaded woodpecker is likely to
become an endangered species within the foreseeable future primarily
due to threats stemming from lack of suitable habitat. Therefore, the
provisions of this proposed 4(d) rule prohibit incidental take
associated with actions that would result in the further loss or
degradation of red-cockaded woodpecker habitat, including damage to or
loss of cavity trees. Maintaining and expanding existing populations is
also vital to the conservation of the species; therefore, the proposed
4(d) rule would also prohibit incidental take associated with actions
that would harm or harass red-cockaded woodpeckers during breeding
season as well as ban the use of insecticides and herbicides on
standing pine trees in and around active cavity tree clusters (to
provide for adequate foraging).
The red-cockaded woodpecker relies, and will continue to rely, on
artificial cavities until a sufficient number of large mature pines
becomes widely available; the installation and maintenance of
artificial cavities is an essential management tool to sustain
populations until such time as there are adequate natural cavities.
However, the proper techniques to install cavity inserts, drill
cavities, or install cavity restrictor plates require training and
experience; therefore, the proposed 4(d) rule would prohibit incidental
take associated with these activities, so that they can be properly
regulated under a section 10(a)(1)(A) permit. Similarly, inspecting
cavities to monitor eggs and hatchlings, typically using a video scope,
drop light, or mirror inserted into the cavity, could cause incidental
take, through flushing of adult or subadult birds resulting in possible
injury or even death, if not done correctly. Therefore, the proposed
4(d) rule would prohibit incidental take associated with inspections of
cavity contents, including the use of video scopes, drop lights, or
mirrors, inserted into cavities; however, these activities could be
covered under a section 10(a)(1)(A) permit.
The proposed 4(d) would also provide for certain exceptions to the
prohibitions. In addition to certain standard exceptions, they include
incidental take on Department of Defense installations under certain
circumstances, incidental take associated with conservation and habitat
restoration actions carried out in accordance with a Service- or State-
approved management plan, and certain actions that would harm or harass
red-cockaded woodpeckers during breeding season associated with
existing infrastructure that are not increases in the existing
activities. All of these prohibitions and exceptions are discussed in
more detail below.
The provisions of this proposed 4(d) rule are one of many tools
that the Service would use to promote the conservation of the red-
cockaded woodpecker. This proposed 4(d) rule would apply only if and
when the Service makes final the determination to reclassify the red-
cockaded woodpecker as a threatened species.
Provisions of the Proposed 4(d) Rule
This proposed 4(d) rule would provide for the conservation of the
red-cockaded woodpecker by prohibiting the following activities, except
as otherwise authorized or permitted: Importing or exporting; take;
possession and other acts with unlawfully taken specimens; delivering,
receiving, transporting, or shipping in interstate or foreign commerce
in the course of commercial activity; and selling or offering for sale
in interstate or foreign commerce. We also propose several standard
exceptions to the prohibitions for the red-cockaded woodpecker, such as
activities authorized by permits under Sec. 17.32 of these
regulations; take by employees of State conservation agencies operating
under a cooperative agreement with the Service in accordance with
section 6(c) of the Act; and take by an employee of the Service,
Federal land management agency, or State conservation agency to aid
sick or injured red-cockaded woodpeckers, which are set forth under
Proposed Regulation Promulgation, below.
Under the Act, ``take'' means to harass, harm, pursue, hunt, shoot,
wound, kill, trap, capture, or collect, or to attempt to engage in any
such conduct. Some of these provisions have been further defined by
regulation at 50 CFR 17.3. Take can result knowingly or otherwise, by
direct and indirect impacts, intentionally or incidentally. Regulating
intentional and incidental take would help preserve the species'
remaining populations; enable beneficial management actions to occur;
and decrease synergistic, negative effects from other stressors.
In this 4(d) rule, we propose to prohibit intentional take,
including capturing, handling, and similar activities, because these
activities require training and experience. Such activities include,
but are not limited to, translocation, banding, collecting tissue
samples, and research involving capturing and handling red-cockaded
woodpeckers. While these activities are important to red-cockaded
woodpecker recovery, there are proper techniques to capturing and
handling birds that require training and experience. Improper capture,
banding, or handling can cause injury or even result in death of red-
cockaded woodpeckers. Therefore, to assure these activities continue to
be conducted correctly by properly trained personnel, the proposed 4(d)
rule would prohibit intentional take; however, these activities could
be covered under a section 10(a)(1)(A) permit.
[[Page 63494]]
For the purposes of this rule, ``occupied habitat'' is defined as
an active cavity tree cluster with surrounding suitable foraging
habitat. An ``active cavity tree cluster'' is defined as the area
delineated by a polygon of active cavity trees plus a 200-foot buffer,
although there are some exceptions to this. Foraging habitat is
delineated as surrogate foraging partitions according to described
Service procedure and standard.
As discussed above under Summary of Stressors and Conservation
Measures Affecting the Species, the lack of suitable habitat is the
primary factor continuing to affect the status of the red-cockaded
woodpecker. Historical clearcutting, incompatible forest management,
and conversion to urban and agricultural lands uses resulted in the
loss of the majority of longleaf and other open-canopy pine habitat
across the range of the species. While these impacts have been
significantly curtailed and mostly replaced by beneficial conservation
management, stressors caused by adverse historical practices still
linger, such as insufficient numbers of cavities, low numbers of
suitable old pines, and habitat fragmentation. In addition, these types
of actions do still occur within red-cockaded woodpecker habitat, so
maintaining existing habitat is essential. Therefore, in addition to
the activities prohibited above, this proposed 4(d) rule would prohibit
incidental take of any red-cockaded woodpecker: (1) Associated with
damage or conversion of currently occupied red-cockaded woodpecker
nesting and foraging habitat to other land uses that result in
conditions not able to support red-cockaded woodpeckers; and (2)
associated with forest management practices in currently occupied red-
cockaded woodpecker nesting and foraging habitat that result in
conditions not able to support red-cockaded woodpeckers. Such actions
could include, but are not necessarily limited to, timber harvesting
for thinning or regeneration in occupied habitat that temporarily or
permanently removes active cavity trees or suitable foraging habitat
and renders the remaining habitat and timber insufficient for red-
cockaded woodpeckers, or actions that permanently convert currently
occupied red-cockaded woodpecker nesting and foraging habitat to other
non-forest land uses, such as real estate development, cultivation or
crops, firing ranges on military installations, roads, rights-of-way,
and pasture.
However, under this 4(d) rule, we propose that habitat restoration
activities that would sustain, improve, or increase quality and
quantity of habitat for the red-cockaded woodpecker would be excepted
from incidental take prohibitions if they are conducted under a
Service- or State-approved management plan that provides for the
conservation of the red-cockaded woodpecker. The Service encourages
landowners and managers to conduct activities that maintain and improve
red-cockaded woodpecker habitat. These habitat restoration activities
may include, but are not limited to, thinning overstocked stands;
converting loblolly, slash or other planted pines to more fire-tolerant
native pines such as longleaf pine; regeneration of stands to provide
more sustainable future habitat; and prescribed fire. Current
conditions in certain pine stands can limit the amount of red-cockaded
woodpecker habitat. For example, foraging habitat dominated by even-
aged stands of old senescent pines may limit the ability of younger
stands to grow and replace the future natural loss of older stands.
Regeneration can be an important tool to provide a more sustainable
future source of suitable red-cockaded woodpecker nesting and foraging
habitat with trees of sufficient size and age. However, harvesting
occupied red-cockaded woodpecker habitat for regeneration in these
conditions could result in loss of suitable habitat, resulting in a
reduction to the red-cockaded woodpecker population. Under this
proposed 4(d) rule, we would under certain conditions except incidental
take associated with habitat restoration activities that have short-
term adverse effects to red-cockaded woodpecker, but that are intended
to provide for improved habitat quality and quantity in the long term,
with coinciding increase in numbers of red-cockaded woodpeckers.
Current and future red-cockaded woodpecker habitat conditions that
require such restoration can vary significantly among sites and
properties, to the extent that it would be extremely difficult to
prescribe a universal condition by which this exception would apply.
Therefore, in this 4(d) rule we propose that these activities may
proceed in compliance with a Service- or State-approved management
plan, where the site-specific conditions can be strategically and
accurately assessed. Suitable management plans may consist of stand-
alone documents, or may be tiered to other plans, such as U.S. Forest
Service Land and Resource Management Plans, National Wildlife Refuge
System Comprehensive Conservation Plans, and wildlife management area
plans, State Wildlife Action Plans, or other State agency plans.
Potentially, these management plans could cover more than just
situations where land managers are seeking to alter habitat in the
short term for long-term restoration of improved habitat. In this 4(d)
rule we propose to except incidental take associated with other
management activities conducted under Service- or State-approved red-
cockaded woodpecker management plans. Public agencies and private
landowners prepare a variety of plans for different purposes. A
Service- or State-approved plan in this regard would include a red-
cockaded woodpecker management component, whether as a part of a larger
plan or a stand-alone plan, to address factors including, but not
limited to, the red-cockaded woodpecker population size objective and
how management for artificial cavities as needed and habitat management
to sustain, restore, or increase habitat for foraging and cavity trees
will attain population size objectives. For example, once certain
population size objectives, such as those identified in the 2003
recovery plan, are met, and other parameters are established (such as
commitments relating to the amount, extent, and location of any future
incidental take), a landowner following a Service- or State-approved
management plan could be excepted from incidental take for red-cockaded
woodpecker conservation activities or habitat restoration activities,
including, but not limited to silviculture and prescribed fire,
activities causing harm or harassment of red-cockaded woodpeckers, and
use of insecticides or herbicides on their lands. Again, the Service
seeks to encourage comprehensive, proactive management that results in
red-cockaded woodpecker population growth and stability. Excepting
incidental take once such targets are met will encourage these
beneficial management activities. However, because of the differences
in needed management across the range of the species, it is appropriate
to identify these population targets and other parameters on a case-by-
case basis in a Service- or State-approved management plan, rather than
in a blanket exception in this 4(d) rule. State agency Safe Harbor
plans and agreements implemented for non-governmental landowners, as
approved by the Service, do not need to be covered under this exception
because they receive permits under the authority of section 10(a)(1)(A)
of the Act that provides exemption from the prohibitions of incidental
take.
We acknowledge the critical role that the States play in the
conservation of
[[Page 63495]]
the red-cockaded woodpecker. As described in Conservation Measures that
Benefit the Species, above, States solely own and manage lands occupied
by at least 31 demographic populations and oversee State-wide safe
harbor agreements that have enrolled 459 non-Federal landowners
covering approximately 2.5 million acres. Because of their authorities
and their close working relationships with landowners, State agencies
are in a unique position to assist the Services in implementing
conservation programs for the red-cockaded woodpecker. We also
acknowledge the workload that will be associated with the management
plans as envisioned, and the limited resources the Service may have to
participate fully in developing these plans, especially if multiple
landowners were to request to develop such plans if and when this 4(d)
rule is made final. Our intention is that these management plans would
be developed in coordination with all affected entities--the Service,
the landowner or manager, and the State conservation agency. However,
because of the States' unique relationship with landowners, and their
experience and sustained performance implementing conservation programs
for red-cockaded woodpeckers in their States, in this rule, we propose
that management actions implemented under red-cockaded woodpecker
management plans developed with and approved by State conservation
agencies and not necessarily the Service are excepted from the
incidental take prohibitions. The Service seeks comment on what
conditions, if any, should be placed upon State-approved management
plans such that they would provide both protections to red-cockaded
woodpeckers and incentives to landowners similar to a Service-approved
plan (see Information Requested, above).
The Service is also considering how to expand and provide further
clarity regarding red-cockaded woodpecker conservation actions and
habitat restoration activities that would be excepted from the
incidental take prohibition in the 4(d) rule, and therefore we seek
comment on our proposed provision excepting incidental take resulting
from conservation or habitat management activities, including
silviculture, prescribed fire, and use of insecticides or herbicides,
with a Service- or State-approved management plan for red-cockaded
woodpecker conservation (see Information Requested, above). In
addition, we seek comment and information about the important factors
that should be considered for these Service- or State-approved
management plans. These factors may include the duration of the plan;
personnel and funding for plan implementation; current habitat
conditions and management limitations; the treatments to improve
habitat and resolve limitations; desired future habitat conditions; and
the past, current, and anticipated future size of the red-cockaded
woodpecker population. In addition, these factors may include the role
and extent of Service oversight of both Service- and State-approved
plans, such as monitoring requirements and reporting to the Service any
resulting take of red-cockaded woodpeckers. Continued conservation
activities and beneficial land management are necessary to address
habitat degradation and fragmentation, and it is the intent of this
proposed rule to encourage these activities. We also seek comment on
whether an exception could be made for beneficial long-term forest
regeneration activities without a Service- or State-approved management
plan, if limiting conditions were placed on the activities, such as
red-cockaded woodpecker current population size and a future limit to
the reduction of population size as a result of the restoration
project, and what those limiting conditions should be.
The use of insecticides and herbicides within or near an active
cavity tree cluster could expose red-cockaded woodpeckers and their
invertebrate prey to toxic chemicals, even when application follows
labeling requirements. Depending on chemical ingredients, toxicity, and
dose exposure, there is an ecological risk that foraging red-cockaded
woodpeckers could be adversely exposed and injured (National Research
Council 2013, p. 3-15). Adverse impacts to red-cockaded woodpeckers
include reduced quantity of insects available for foraging or ingestion
of contaminated prey (e.g., EPA 1993, p. 1-3; National Research Council
2013, pp. 3-15). This proposed 4(d) rule would prohibit incidental take
associated with using insecticides and herbicides on any standing pine
tree in habitat occupied by red-cockaded woodpeckers within 0.50-mile
from the center of an active cavity tree cluster, the area in which
red-cockaded woodpeckers in an active territory are most likely to
forage (Convery and Walters 2004, entire).
This measure would not prohibit use of insecticides or herbicides
in applications that do not result in an adverse chemical exposure to
red-cockaded woodpeckers. The Service recognizes that herbicides can be
safely applied in occupied habitat (McDearman 2012, entire). For
example, hand application of herbicides by direct foliar spray in
occupied habitat to control undesirable shrubs or hardwoods may not
result in incidental take if no chemicals are applied--either directly
or inadvertently--to standing pine trees where red-cockaded woodpeckers
are expected to forage on uncontaminated invertebrates within the 0.50-
mile radius of the center of the active cavity tree cluster. The use of
insecticides or herbicides within these areas could be permitted under
a Service- or State-approved management plan, as described above, with
an appropriate toxicological risk analysis of the likelihood of an
adverse oral, dermal or respiratory exposure to the red-cockaded
woodpecker, and incidental take could be excepted when adverse short-
term impacts are essential or unavoidable for a long-term benefit. We
seek comment from the public on the spatial area covered by this
prohibition, and whether the prohibition should apply to other
vegetation, such as the herbaceous ground layer in addition to standing
pine trees, within 0.50-mile from the center of an active cavity
cluster, as well as the clarity of the prohibition, (see Information
Requested, above).
The proposed 4(d) rule would also prohibit incidental take of
actions that would render cavity trees unusable to red-cockaded
woodpeckers. This could result from activities such as parking
vehicles, stacking pallets, or piling logging slash or logging decks,
pine straw, or other material near active cavity trees; activities that
damage active cavity trees; and accidently-set wildfires, because such
activities could render the cavity trees unusable to red-cockaded
woodpeckers. This prohibition is intended to prevent incidental take
resulting from operations in the vicinity of active cavity trees that
may damage the trees through, for example, collision or compaction of
tree roots. This prohibition would also apply to activities that result
in damage to cavity trees, rendering them unusable to red-cockaded
woodpeckers. For example, incidental take caused by accidently started
fires that damage cavity trees or a small- or large-arms munitions
ricochet that hit a cavity tree, causing damage that ultimately kills
the tree, would be prohibited.
Within the range of the species, all Department of Defense Army,
Air Force, and Marine Corps installations have red-cockaded woodpecker
management plans and guidelines incorporated into their Service-
approved INRMPs to
[[Page 63496]]
minimize the adverse effects of military training and to achieve
recovery objectives. These plans and guidelines include red-cockaded
woodpecker conservation and population size objectives, management
actions to achieve conservation goals, monitoring and reporting, and
specific training activities that are allowed or restricted within
clusters and near cavity trees. Under the Sikes Act (16.U.S.C. 670 et
seq.), the Service is required to review and approve INRMPs, when they
are revised, at least every 5 years, and participate in annual reviews.
As a result of these conservation programs under Service-approved
INRMPs, red-cockaded woodpecker populations have increased on all
installations. In fact, Fort Bragg, Fort Stewart, Eglin Air Force Base,
Fort Benning, and Camp Blanding all have achieved or surpassed their
red-cockaded woodpecker recovery plan population size objectives and
are expected to continue to manage towards larger populations. Active
and beneficial red-cockaded management to increase population sizes on
military installations has been an essential component of sustaining
the species, and it offsets the adverse effects of training. Therefore,
the proposed 4(d) rule would except incidental take resulting from red-
cockaded woodpecker management and military training activities on
Department of Defense installations with a Service-approved INRMP. Any
incidental take resulting from new proposed training or construction
activities that is not incorporated into a Service-approved INRMP would
not be excepted under this proposed rule, but could be excepted through
an incidental take statement associated with a biological opinion
resulting from section 7 consultation under the Act. The Service seeks
comments on this exception (see Information Requested, above).
During the breeding season in particular, vehicles and equipment,
floodlights, other construction activities, extraction activities,
military maneuvers, or even just human presence can potentially harass
breeding red-cockaded woodpeckers, resulting in nest failure.
Therefore, this proposed 4(d) rule would also prohibit incidental take
associated with the operation of vehicles or mechanical equipment, the
use of flood lights at night, activities with a human presence,
(including military activities), other actions associated with
construction or repair, or extraction activities in an active cavity
tree cluster during the breeding season. The breeding season for red-
cockaded woodpeckers can vary across the latitudinal range and,
depending on location, the season can start as early as March and end
as late as July; therefore we do not propose specific dates for this
prohibition in this rule. We furthermore acknowledge that incidental
take from such activities can also occur outside of the breeding
season, so we seek comments from the public about whether this
prohibition should encompass the whole year, and not just during the
breeding season (see Information Requested, above).
We acknowledge that there are active cavity tree clusters within
areas with existing human presence, activities, and infrastructure,
including Federal, State, and county roads, private forest access roads
and trails, military installations, nature trails, golf courses, and
residential areas. We also recognize the use of vehicles and mechanical
equipment may need to be used for maintenance requirements to ensure
safety and operational needs of existing infrastruture, including
maintaining existing infrastructure such as firebreaks, roads, rights-
of-way, fence lines, and golf courses, and we understand that these
maintenance requirements to ensure human safety may need to take place
during the breeding season. Incidental take resulting from these
ongoing activities are excepted from this prohibition. In addition, we
recognize there is existing human presence, activities, and
infrastructure within active cavity tree clusters and that red-cockaded
woodpeckers have demonstrated tolerance, or an ability to habituate, to
these stressors without adversely affecting essential feeding,
breeding, or sheltering behaviors. Therefore, for continuation of
ongoing activities, as long as there is no increase in the frequency,
intensity, duration, pattern, or extent of existing operations, use, or
activities, such that red-cockaded woodpeckers would negatively respond
to the stressor, the activities may continue (i.e., are not
prohibited), and any incidental take, although unlikely, resulting from
existing operation of vehicles or mechanical equipment, use of lights
at night, or activities with human presence are excepted from the
incidental take prohibitions. An example of an activity that would be
excepted from the incidental take prohibitions would be routine,
ongoing road maintenance, such as mowing rights-of way or trimming back
vegetation, during the breeding season on a forest road that bisects an
active cavity tree cluster. Other examples of ongoing activities
include a continuation of recreation at golf courses and parks and
driving vehicles on existing highways and roads. On the other hand, new
activities, or ongoing activities that increase in frequency,
intensity, duration, or extent would not be excepted. For instance, new
road construction initiated during the breeding season in an active
cavity tree cluster would potentially increase the extent or duration
of stressors beyond existing, routine operations, and therefore would
be prohibited.
However, there are also operations conducted near active cavity
trees that render the tree unusable to red-cockaded woodpeckers,
through sustained harassment that prevents individual birds from using
cavities. For example, staging and use of equipment such as generators
and floodlights within an active cavity tree cluster can cause birds to
roost outside of their cavities and become exposed to predation,
disrupt incubation and kill eggs, or alter feeding of nestlings, which
could result in their death. We seek comment on whether this
prohibition should also apply to these situations where harassment is
likely (see Information Requested, above).
Red-cockaded woodpeckers must have sufficient nesting and foraging
habitat to survive. Maintaining an adequate number of suitable cavities
in each woodpecker cluster is fundamental to the conservation of the
species. Loss of natural cavity trees was a major factor in the
species' decline, and availability of natural cavity trees currently
limits many populations. Until a sufficient number of large, old pines
become widely available, installation and maintenance of artificial
cavities is an essential management tool to sustain populations and
bring about population increases, and the Service continues to
encourage the installation of artificial cavities. However, we also
acknowledge that there are proper techniques to install cavity inserts,
drill cavities, or install cavity restrictor plates, and these
techniques require training and experience. Improperly installed
artificial cavities can cause injury or even result in death of red-
cockaded woodpeckers attempting to roost or nest in them. Therefore, to
assure artificial cavities continue to be installed correctly by
properly trained personnel, the proposed 4(d) rule would prohibit
incidental take associated with the installation of artificial cavity
inserts, drilled cavities, or cavity restrictor plates; however, these
activities could be covered under a section 10(a)(1)(A) permit.
We acknowledge that many of our partners have the training and
extensive experience in installing artificial
[[Page 63497]]
cavities. We, therefore, ask the public to comment regarding whether
the installation of artificial cavities should be excepted from the
incidental take prohibitions for individuals who have completed
training and have achieved a certain level of proficiency, and what
that training and proficiency should be (see Information Requested,
above).
Similarly, we encourage monitoring of red-cockaded woodpecker
clusters and populations, including inspecting cavities to monitor eggs
and hatchlings, typically using a video scope, drop light, or mirror
inserted into the cavity. However, these inspections can cause
incidental take if not done correctly, as red-cockaded woodpeckers
sometimes will flush from the cavity chamber and injure themselves
trying to escape past the probe. Therefore, the proposed 4(d) rule
would prohibit incidental take associated with inspections of cavity
contents, including the use of video scopes, drop lights, or mirrors,
inserted into cavities. These activities could be covered under a
section 10(a)(1)(A) permit.
We may issue permits to carry out otherwise prohibited activities,
including those described above, involving threatened wildlife under
certain circumstances. Regulations governing permits are codified at 50
CFR 17.32. With regard to threatened wildlife, a permit may be issued
for the following purposes: Scientific purposes, to enhance propagation
or survival, for economic hardship, for zoological exhibition, for
educational purposes, for incidental taking, or for special purposes
consistent with the purposes of the Act. There are also certain
statutory exceptions from the prohibitions, which are found in sections
9 and 10 of the Act.
The Service recognizes the special and unique relationship with our
State conservation agency partners in contributing to conservation of
listed species. State agencies often possess scientific data and
valuable expertise on the status and distribution of endangered,
threatened, and candidate species of wildlife and plants. State
agencies, because of their authorities and their close working
relationships with local governments and landowners, are in a unique
position to assist the Services in implementing all aspects of the Act.
In this regard, section 6 of the Act provides that the Services shall
cooperate to the maximum extent practicable with the States in carrying
out programs authorized by the Act. Therefore, any qualified employee
or agent of a State conservation agency that is a party to a
cooperative agreement with the Service in accordance with section 6(c)
of the Act, who is designated by his or her agency for such purposes,
would be able to conduct activities designed to conserve the red-
cockaded woodpecker that may result in otherwise prohibited take
without additional authorization, including installation of artificial
cavities.
Nothing in this proposed 4(d) rule would change in any way the
recovery planning provisions of section 4(f) of the Act, the
consultation requirements under section 7 of the Act, or the ability of
the Service to enter into partnerships for the management and
protection of the red-cockaded woodpecker. However, interagency
cooperation may be further streamlined through planned programmatic
consultations for the species between Federal agencies and the Service.
We ask the public, particularly State agencies and other interested
stakeholders that may be affected by the proposed 4(d) rule, to provide
comments and suggestions regarding additional guidance and methods that
the Service could provide or use, respectively, to streamline the
implementation of this proposed 4(d) rule (see Information Requested,
above).
Required Determinations
Clarity of the Proposed Rule
We are required by Executive Orders 12866 and 12988 and by the
Presidential Memorandum of June 1, 1998, to write all rules in plain
language. This means that each rule we publish must:
(a) Be logically organized;
(b) Use the active voice to address readers directly;
(c) Use clear language rather than jargon;
(d) Be divided into short sections and sentences; and
(e) Use lists and tables wherever possible.
If you feel that we have not met these requirements, send us
comments by one of the methods listed in ADDRESSES. To better help us
revise the rule, your comments should be as specific as possible. For
example, you should tell us the numbers of the sections or paragraphs
that are unclearly written, which sections or sentences are too long,
the sections where you feel lists or tables would be useful, etc.
National Environmental Policy Act
We have determined that we do not need to prepare an environmental
assessment or environmental impact statement, as defined in the
National Environmental Policy Act (42 U.S.C. 4321 et seq.), in
connection with regulations adopted pursuant to section 4(a) of the
Endangered Species Act. We published a notice outlining our reasons for
this determination in the Federal Register on October 25, 1983 (48 FR
49244).
Government-to-Government Relationship With Tribes
In accordance with the President's memorandum of April 29, 1994,
``Government-to-Government Relations with Native American Tribal
Governments'' (59 FR 22951), Executive Order 13175, and the Department
of the Interior's manual at 512 DM 2, we readily acknowledge our
responsibility to communicate meaningfully with recognized Federal
Tribes on a government-to-government basis. In accordance with
Secretarial Order 3206 of June 5, 1997 (American Indian Tribal Rights,
Federal-Tribal Trust Responsibilities, and the Endangered Species Act),
we readily acknowledge our responsibilities to work directly with
tribes in developing programs for healthy ecosystems, to acknowledge
that tribal lands are not subject to the same controls as Federal
public lands, to remain sensitive to Indian culture, and to make
information available to tribes. As we move forward with this
reclassification process, we will continue to consult with tribes on a
government-to-government basis as necessary.
References Cited
A complete list of references cited is available on the internet at
http://www.regulations.gov under Docket No. FWS-R4-ES-2019-0018 and
upon request from the person listed under FOR FURTHER INFORMATION
CONTACT, above.
Authors
The primary authors of this proposed rule are staff members of the
Service's Southeastern Region, Division of Conservation and
Classification.
Signing Authority
The Director, U.S. Fish and Wildlife Service, approved this
document and authorized the undersigned to sign and submit the document
to the Office of the Federal Register for publication electronically as
an official document of the U.S. Fish and Wildlife Service. Aurelia
Skipwith, Director, U.S. Fish and Wildlife Service, approved this
document on September 24, 2020, for publication.
[[Page 63498]]
Dated: September 24, 2020.
Madonna Baucum,
Regulations and Policy Chief, Division of Policy, Economics, Risk
Management, and Analytics, Joint Administrative Operations, U.S. Fish
and Wildlife Service.
List of Subjects in 50 CFR Part 17
Endangered and threatened species, Exports, Imports, Reporting and
recordkeeping requirements, Transportation.
Proposed Regulation Promulgation
Accordingly, we propose to amend part 17, subchapter B of chapter
I, title 50 of the Code of Federal Regulations, as set forth below:
PART 17--ENDANGERED AND THREATENED WILDLIFE AND PLANTS
0
1. The authority citation for part 17 continues to read as follows:
Authority: 16 U.S.C. 1361-1407; 1531-1544; and 4201-4245,
unless otherwise noted.
0
2. Amend Sec. 17.11(h) by revising the entry for ``Woodpecker, red-
cockaded'' under BIRDS in the List of Endangered and Threatened
Wildlife to read as follows:
Sec. 17.11 Endangered and threatened wildlife.
* * * * *
(h) * * *
----------------------------------------------------------------------------------------------------------------
Listing citations and
Common name Scientific name Where listed Status applicable rules
----------------------------------------------------------------------------------------------------------------
* * * * * * *
Birds
* * * * * * *
Woodpecker, red-cockaded........ Dryobates borealis Wherever found.... T 35 FR 16047, 10/13/
1970; [Insert Federal
Register citation when
published as a final
rule]; 50 CFR
17.41(h).\4d\
* * * * * * *
----------------------------------------------------------------------------------------------------------------
0
3. Amend Sec. 17.41 by adding a paragraph (h) to read as follows:
Sec. 17.41 Special rules--birds.
* * * * *
(h) Red-cockaded woodpecker (Dryobates borealis).
(1) Definition. Under this paragraph (h), an ``active cavity tree
cluster'' means the area delineated by a polygon of red-cockaded
woodpecker active (i.e., occupied) cavity trees with a 200-foot buffer.
(2) Prohibitions. The following prohibitions in this paragraph
(h)(2) that apply to endangered wildlife also apply to red-cockaded
woodpecker. Except as provided under paragraph (h)(3) of this section
and Sec. Sec. 17.4 and 17.5, it is unlawful for any person subject to
the jurisdiction of the United States to commit, to attempt to commit,
to solicit another to commit, or cause to be committed, any of the
following acts in regard to this species:
(i) Import or export, as set forth at Sec. 17.21(b).
(ii) Intentional take, including capturing, handling, or other
activities, except as set forth in paragraphs (h)(3)(ii) and (iii) of
this section.
(iii) Possession, sale, delivery, carrying, transportation, or
shipment, by any means whatsoever, of any red-cockaded woodpecker taken
in violation of paragraphs (h)(2)(i) and (ii) of this section, except
as set forth in paragraph (h)(3)(iv) of this section.
(iv) Incidental take resulting from the following activities:
(A) Damage or conversion of currently occupied red-cockaded
woodpecker nesting and foraging habitat to other land uses that results
in conditions not able to support red-cockaded woodpeckers.
(B) Forest management practices in currently occupied red-cockaded
woodpecker nesting and foraging habitat, including, but not limited to,
timber harvesting for thinning or regeneration, that result in
conditions not able to support red-cockaded woodpeckers.
(C) Operation of vehicles or mechanical equipment, the use of
floodlights, activities with a human presence, other actions associated
with construction and repair, or extraction activities in an active
cavity tree cluster during the red-cockaded woodpecker breeding season,
except as set forth under paragraph (h)(3)(v)(C) of this section.
(D) Installation of artificial cavity inserts, drilled cavities, or
cavity restrictor plates.
(E) Inspecting cavity contents, including, but not limited to, use
of video scopes, drop lights, or mirrors inserted into cavities.
(F) Activities that render active cavity trees unusable to red-
cockaded woodpeckers.
(G) Use of insecticide or herbicide on any standing pine tree
within 0.50-mile from the center of an active cavity tree cluster of
red-cockaded woodpeckers.
(iv) Possession and other acts with unlawfully taken specimens, as
set forth at Sec. 17.21(d)(1).
(v) Interstate or foreign commerce in the course of commercial
activity, as set forth at Sec. 17.21(e).
(vi) Sale or offer for sale, as set forth at Sec. 17.21(f).
(3) Exceptions from prohibitions. In regard to this species, you
may:
(i) Conduct activities as authorized by a permit issued under Sec.
17.32.
(ii) Take, as set forth at Sec. 17.21(c)(2) through (c)(4) for
endangered wildlife, and (c)(6) and (c)(7) for endangered migratory
birds.
(iii) Take as set forth at Sec. 17.31(b).
(iv) Possess and engage in other acts with unlawfully taken red-
cockaded woodpeckers, as set forth at Sec. 17.21(d)(2) through (d)(4)
for endangered wildlife.
(v) Take incidental to an otherwise lawful activity caused by:
(A) Red-cockaded woodpecker management and military training
activities on Department of Defense installations with a Service-
approved integrated natural resources management plan.
(B) Habitat restoration activities carried out in accordance with a
management plan providing for red-cockaded woodpecker conservation
developed in coordination with, and approved by, the Service or a State
conservation agency.
(C) Operation of vehicles or mechanical equipment, the use of
lights at night, or activities with a human presence in active cavity
tree cluster during the red-cockaded woodpecker breeding season
provided that they:
[[Page 63499]]
(1) Are maintenance requirements to ensure safety and operational
needs of existing infrastructure, including maintaining existing
infrastructure such as firebreaks, roads, rights-of-way, fence lines,
and golf courses; and
(2) Do not increase the frequency, intensity, duration, pattern, or
extent of existing operation, use, or activities.
[FR Doc. 2020-21510 Filed 10-7-20; 8:45 am]
BILLING CODE 4333-15-P