[Federal Register: February 25, 2009 (Volume 74, Number 36)]
[Rules and Regulations]
[Page 8615-8702]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr25fe09-6]
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Part II
Department of the Interior
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Fish and Wildlife Service
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50 CFR Part 17
Endangered and Threatened Wildlife and Plants; Revised Designation of
Critical Habitat for the Contiguous United States Distinct Population
Segment of the Canada Lynx; Final Rule
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DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
50 CFR Part 17
[FWS-R6-ES-2008-0026; 92210-1117-0000-B4]
RIN 1018-AV78
Endangered and Threatened Wildlife and Plants; Revised
Designation of Critical Habitat for the Contiguous United States
Distinct Population Segment of the Canada Lynx
AGENCY: Fish and Wildlife Service, Interior.
ACTION: Final rule.
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SUMMARY: We, the U.S. Fish and Wildlife Service (Service), designate
revised critical habitat for the contiguous United States distinct
population segment of the Canada lynx (Lynx canadensis) (lynx) under
the Endangered Species Act of 1973, as amended (Act). In total,
approximately 39,000 square miles (mi2) (101,010 square
kilometers (km2)) fall within the boundaries of the revised
critical habitat designation, in five units in the States of Maine,
Minnesota, Montana, Wyoming, Idaho, and Washington.
DATES: This rule becomes effective on March 27, 2009.
ADDRESSES: Comments and materials received, as well as supporting
documentation used in the preparation of this final rule, are available
for public inspection, by appointment, during normal business hours, at
the Montana Ecological Services Office, 585 Shepard Way, Helena, MT
59601; telephone 406-449-5225. The final rule, environmental
assessment, and economic analysis are available on the Internet at
http://www.regulations.gov and at http://mountain-prairie.fws.gov/
species/mammals/lynx/criticalhabitat.htm.
FOR FURTHER INFORMATION CONTACT: Mark Wilson, Field Supervisor, Montana
Ecological Services Office (see ADDRESSES section) (406-449-5225); Lori
Nordstrom, Field Supervisor, Maine Field Office (207-827-5938); Tony
Sullins, Field Supervisor, Twin Cities Ecological Services Office
(Minnesota) (612-725-3548); or Mark Miller, Field Supervisor, Upper
Columbia Fish and Wildlife Office (Washington) (509-891-6839).
SUPPLEMENTARY INFORMATION:
Background
It is our intent to discuss only topics relevant to the revised
designation of critical habitat in this rule. For more information
about the listing of the Canada lynx, refer to the final listing rule
published in the Federal Register on March 24, 2000 (65 FR 16052), the
clarification of findings published in the Federal Register on July 3,
2003 (68 FR 40076), the proposed rule to designate revised critical
habitat rule published in the Federal Register on February 28, 2008 (73
FR 10860), and the notice announcing the availability of the draft
economic analysis (DEA), draft environmental assessment, and reopening
the comment period that published on October 21, 2008 (73 FR 62450).
Species Information
Canada lynx are medium-sized cats, generally measuring 30 to 35
inches (in) (75 to 90 centimeters (cm)) long and weighing 18 to 23
pounds (8 to 10.5 kilograms) (Quinn and Parker 1987, Table 1). They
have large, well-furred feet and long legs for traversing snow; tufts
on the ears; and short, black-tipped tails.
Lynx are highly specialized predators of snowshoe hare (Lepus
americanus) (McCord and Cardoza 1982, p. 744; Quinn and Parker 1987,
pp. 684-685; Aubry et al. 2000, pp. 375-378). Lynx and snowshoe hares
are strongly associated with what is broadly described as boreal forest
(Bittner and Rongstad 1982, p. 154; McCord and Cardoza 1982, p. 743;
Quinn and Parker 1987, p. 684; Agee 2000, p. 39; Aubry et al. 2000, pp.
378-382; Hodges 2000a, pp. 136-140 and 2000b, pp. 183-191; McKelvey et
al. 2000b, pp. 211-232). The predominant vegetation of boreal forest is
conifer trees, primarily species of spruce (Picea spp.) and fir (Abies
spp.) (Elliot-Fisk 1988, pp. 34-35, 37-42). In the contiguous United
States, the boreal forest types transition to deciduous temperate
forest in the Northeast and Great Lakes and to subalpine forest in the
west (Agee 2000, pp. 40-41). Lynx habitat can generally be described as
moist boreal forests that have cold, snowy winters and a snowshoe hare
prey base (Quinn and Parker 1987, p. 684-685; Agee 2000, pp. 39-47;
Aubry et al. 2000, pp. 373-375; Buskirk et al. 2000b, pp. 397-405;
Ruggiero et al. 2000, pp. 445-447). In mountainous areas, the boreal
forests that lynx use are characterized by scattered moist forest types
with high hare densities in a matrix of other habitats (e.g.,
hardwoods, dry forest, non-forest) with low hare densities. In these
areas, lynx incorporate the matrix habitat (non-boreal forest habitat
elements) into their home ranges and use it for traveling between
patches of boreal forest that support high hare densities where most
foraging occurs.
Snow conditions also determine the distribution of lynx (Ruggiero
et al. 2000, pp. 445-449). Lynx are morphologically and physiologically
adapted for hunting snowshoe hares and surviving in areas that have
cold winters with deep, fluffy snow for extended periods. These
adaptations provide lynx a competitive advantage over potential
competitors, such as bobcats (Lynx rufus) or coyotes (Canis latrans)
(McCord and Cardoza 1982, p. 748; Buskirk et al. 2000a, pp. 86-95;
Ruediger et al. 2000, p. 1-11; Ruggiero et al. 2000, pp. 445, 450).
Bobcats and coyotes have a higher foot load (more weight per surface
area of foot), which causes them to sink into the snow more than lynx.
Therefore, bobcats and coyotes cannot efficiently hunt in fluffy or
deep snow and are at a competitive disadvantage to lynx. Long-term snow
conditions presumably limit the winter distribution of potential lynx
competitors such as bobcats (McCord and Cardoza 1982, p. 748) or
coyotes.
Lynx Habitat Requirements
Because of the patchiness and temporal nature of high-quality
snowshoe hare habitat, lynx populations require large boreal forest
landscapes to ensure that sufficient high quality snowshoe hare habitat
is available and to ensure that lynx may move freely among patches of
suitable habitat and among subpopulations of lynx. Populations that are
composed of a number of discrete subpopulations, connected by
dispersal, are called metapopulations (McKelvey et al. 2000c, p. 25).
Individual lynx maintain large home ranges (reported as generally
ranging between 12 to 83 mi2 (31 to 216 km2))
(Koehler 1990, p. 847; Aubry et al. 2000, pp. 382-386; Squires and
Laurion 2000, pp. 342-347; Squires et al. 2004b, pp. 13-16, Table 6;
Vashon et al. 2005a, pp. 7-11). The size of lynx home ranges varies
depending on abundance of prey, the animal's gender and age, the
season, and the density of lynx populations (Koehler 1990, p. 849;
Poole 1994, pp. 612-616; Slough and Mowat 1996, pp. 951, 956; Aubry et
al. 2000, pp. 382-386; Mowat et al. 2000, pp. 276-280; Vashon et al.
2005a, pp. 9-10). When densities of snowshoe hares decline, for
example, lynx enlarge their home ranges to obtain sufficient amounts of
food to survive and reproduce.
In the contiguous United States, the boreal forest landscape is
naturally patchy and transitional because it is the southern edge of
the boreal forest range. This generally limits snowshoe hare
populations in the contiguous United States from achieving densities
similar to those of the expansive northern
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boreal forest in Canada (Wolff 1980, pp. 123-128; Buehler and Keith
1982, pp. 24, 28; Koehler 1990, p. 849; Koehler and Aubry 1994, p. 84).
Additionally, the presence of more snowshoe hare predators and
competitors at southern latitudes may inhibit the potential for high-
density hare populations (Wolff 1980, p. 128). As a result, lynx
generally occur at relatively low densities in the contiguous United
States compared to the high lynx densities that occur in the northern
boreal forest of Canada (Aubry et al. 2000, pp. 375, 393-394) or the
densities of species such as the bobcat, which is a habitat and prey
generalist.
Lynx are highly mobile and generally move long distances (greater
than 60 mi (100 km)) (Aubry et al. 2000, pp. 386-387; Mowat et al.
2000, pp. 290-294). Lynx disperse primarily when snowshoe hare
populations decline (Ward and Krebs 1985, pp. 2821-2823; O'Donoghue et
al. 1997, pp. 156, 159; Poole 1997, pp. 499-503). Subadult lynx
disperse even when prey is abundant (Poole 1997, pp. 502-503),
presumably to establish new home ranges. Lynx also make exploratory
movements outside their home ranges (Aubry et al. 2000, p. 386; Squires
et al. 2001, pp. 18-26).
The boreal forest landscape is naturally dynamic. Forest stands
within the landscape change as they undergo succession after natural or
human-caused disturbances such as fire, insect epidemics, wind, ice,
disease, and forest management (Elliot-Fisk 1988, pp. 47-48; Agee 2000,
pp. 47-69). As a result, lynx habitat within the boreal forest
landscape is typically patchy because the boreal forest contains stands
of differing ages and conditions, some of which are suitable as lynx
foraging or denning habitat (or will become suitable in the future due
to forest succession) and some of which serve as travel routes for lynx
moving between foraging and denning habitat (McKelvey et al. 2000a, pp.
427-434; Hoving et al. 2004, pp. 290-292).
Snowshoe hares comprise a majority of the lynx diet (Nellis et al.
1972, pp. 323-325; Brand et al. 1976, pp. 422-425; Koehler 1990, p.
848; Apps 2000, pp. 358-359, 363; Aubry et al. 2000, pp. 375-378; Mowat
et al. 2000, pp. 267-268; von Kienast 2003, pp. 37-38; Squires et al.
2004b, p. 15, Table 8). When snowshoe hare populations are low, female
lynx produce few or no kittens that survive to independence (Nellis et
al. 1972, pp. 326-328; Brand et al. 1976, pp. 420, 427; Brand and Keith
1979, pp. 837-838, 847; Poole 1994, pp. 612-616; Slough and Mowat 1996,
pp. 953-958; O'Donoghue et al. 1997, pp. 158-159; Aubry et al. 2000,
pp. 388-389; Mowat et al. 2000, pp. 285-287). Lynx prey
opportunistically on other small mammals and birds, particularly during
lows in snowshoe hare populations, but alternate prey species may not
sufficiently compensate for low availability of snowshoe hares,
resulting in reduced lynx populations (Brand et al. 1976, pp. 422-425;
Brand and Keith 1979, pp. 833-834; Koehler 1990, pp. 848-849; Mowat et
al. 2000, pp. 267-268).
In northern Canada, lynx populations fluctuate in response to the
cycling of snowshoe hare populations (Hodges 2000a, pp. 118-123; Mowat
et al. 2000, pp. 270-272). Although snowshoe hare populations in the
northern portion of their range show strong, regular population cycles,
these fluctuations are generally much less pronounced in the southern
portion of their range in the contiguous United States (Hodges 2000b,
pp. 165-173). In the contiguous United States, the degree to which
regional lynx population fluctuations are influenced by local snowshoe
hare population dynamics is unclear. However, it is anticipated that
because of natural fluctuations in snowshoe hare populations, there
will be periods when lynx densities are extremely low.
Because lynx population dynamics, survival, and reproduction are
closely tied to snowshoe hare availability, snowshoe hare habitat is a
component of lynx habitat. Lynx generally concentrate their foraging
and hunting activities in areas where snowshoe hare populations are
high (Koehler et al. 1979, p. 442; Ward and Krebs 1985, pp. 2821-2823;
Murray et al. 1994, p. 1450; O'Donoghue et al. 1997, pp. 155, 159-160
and 1998, pp. 178-181). Snowshoe hares are most abundant in forests
with dense understories that provide forage, cover to escape from
predators, and protection during extreme weather (Wolfe et al. 1982,
pp. 665-669; Litvaitis et al. 1985, pp. 869-872; Hodges 2000a, pp. 136-
140 and 2000b, pp. 183-195). Generally, hare densities are higher in
regenerating, earlier successional forest stages because they have
greater understory structure than mature forests (Buehler and Keith
1982, p. 24; Wolfe et al. 1982, pp. 665-669; Koehler 1990, pp. 847-848;
Hodges 2000b, pp. 183-195; Homyack 2003, pp. 63, 141; Griffin 2004, pp.
84-88). However, snowshoe hares can be abundant in mature forests with
dense understories (Griffin 2004, pp. 53-54).
Within the boreal forest, lynx den sites are located where coarse
woody debris, such as downed logs and windfalls, provides security and
thermal cover for lynx kittens (McCord and Cardoza 1982, pp. 743-744;
Koehler 1990, pp. 847-849; Slough 1999, p. 607; Squires and Laurion
2000, pp. 346-347; Organ 2001). The amount of structure (e.g., downed,
large, woody debris) appears to be more important than the age of the
forest stand for lynx denning habitat (Mowat et al. 2000, pp. 10-11).
Future of Lynx Habitat
In 2003, we determined that climate change was not a threat to lynx
within the contiguous U.S. DPS because the best available science we
had at that time (Hoving 2001) was too uncertain in nature (68 FR
40083). Since that time, new information on regional climate changes
and potential effects to lynx habitat has been developed (e.g.,
Gonzalez et al. 2007, entire; Knowles et al. 2006, pp. 4545-4559; Danby
and Hick 2007, pp. 358-359), and this new information suggests that
climate change may be an issue of concern for the future conservation
of lynx because lynx distribution and habitat is likely to shift upward
in elevation within its currently occupied range as temperatures
increase (Gonzalez et al. 2007, pp. 7, 13-14, 19). This information,
combined with the information in Hoving 2001, still needs to be
evaluated further to determine how climate change might affect lynx and
lynx habitat. We are evaluating this information in the 5-year review
we are conducting for lynx.
At this time, we find it appropriate to designate critical habitat
for the lynx in areas occupied by the species that currently contain
the physical and biological features essential to the conservation of
the lynx. Revisions to the critical habitat designation may be
necessary in the future to accommodate shifts in the occupied range of
the lynx. The revised critical habitat units in this rule include
higher-elevation habitats that lynx would be able to continue to use if
lynx distribution or habitat shifted upward in elevation.
Previous Federal Actions
For more information on previous Federal actions concerning the
lynx, refer to the final listing rule published in the Federal Register
on March 24, 2000 (65 FR 16052), the clarification of findings
published in the Federal Register on July 3, 2003 (68 FR 40076), and
the final rule designating critical habitat for lynx published in the
Federal Register on November 9, 2006 (71 FR 66007). On July 20, 2007,
we announced that we would review the November 9, 2006, final critical
habitat rule after questions were raised about the integrity of
scientific information used and whether the decision made was
consistent with the appropriate legal standards. Based on our review of
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the previous final critical habitat designation, we determined that the
critical habitat designation was improperly influenced by then deputy
assistant secretary of the Interior Julie MacDonald and, as a result,
may not be supported by the record, may not be adequately explained, or
may not comport with the best available scientific and commercial
information. On January 15, 2008, the U.S. District Court for the
District of Columbia issued an order stating the Service's deadlines
for a proposed rule for revised critical habitat by February 15, 2008,
and a final rule for revised critical habitat by February 15, 2009.
Consequently, our proposed rule was signed on February 13, 2008, and
submitted to the Federal Register. The proposed rule was subsequently
published in the Federal Register on February 28, 2008 (73 FR 10860).
We initiated a 5-year review of the status of lynx on April 18, 2007
(72 FR 19549).
Summary of Comments and Recommendations
We requested written comments from the public on the proposed
revised designation of critical habitat for the lynx during two comment
periods. The first comment period, associated with the publication of
the proposed revised rule (73 FR 10860), opened on February 28, 2008,
and closed on April 28, 2008. Five informal public meetings were held
during this comment period in Washington (2), Minnesota (2), and Maine
(1). We also requested comments on the proposed revised critical
habitat designation, associated DEA, and draft environmental assessment
during a second comment period which opened October 21, 2008, and
closed on November 20, 2008 (73 FR 62450). During this comment period,
we held a public hearing on November 7, 2008, in Kalispell, Montana,
and one on November 13, 2008, in Cody, Wyoming. We contacted
appropriate Federal, State, and local agencies; Tribes; scientific
organizations; and other interested parties and invited them to comment
on the proposed rule, DEA, and draft environmental assessment.
During the comment period for the proposed rule that was open
between February 28, 2008, and April 28, 2008, we received a total of
338 comment letters. For the comment period open from October 21, 2008,
to November 20, 2008, we received 184 comment letters and 17 comments
at the two public hearings. Comments were received from Federal, State,
Tribal and local governments, non-government organizations, private
businesses, and individuals.
In accordance with our policy published on July 1, 1994 (59 FR
34270), we solicited expert opinions from 17 knowledgeable individuals
with scientific expertise that included familiarity with the species,
the geographic region in which the species occurs, and conservation
biology principles. We received responses from three of the peer
reviewers. The peer reviewers had differing assessments of our methods
and conclusions and provided additional information, clarifications,
and suggestions to improve the final critical habitat rule. Peer
reviewer comments are addressed in the following summary and
incorporated into the final rule as appropriate.
We reviewed all comments received from the peer reviewers and the
public for substantive issues and new information regarding critical
habitat for the lynx, and we addressed them in the following summary.
Peer Review Comments
(1) Comment: Some peer reviewers commented that Federal lands
should be included in the final rule due to their importance for lynx
in the Distinct Population Segment area and because designation would
provide clarification to land managers as to the importance of
conserving those lands. The general public also submitted comments
noting this issue.
Our response: We agree that that in all units except Unit 1 (where
Federal lands make up a very small portion of the designation), Federal
lands are an essential component of the revised critical habitat
designation. We have designated critical habitat on Federal lands, as
described in this final rule.
(2) Comment: Some peer reviewers and other commenters stated that
our criteria (especially regarding evidence of occupancy and
reproduction) for defining lynx critical habitat were too narrow or
arbitrary, and resulted in omission of areas they consider important to
lynx conservation, particularly the Selkirk and Kettle Mountains, the
Southern Rockies/Colorado, and a slightly more extensive area in
Minnesota. Other general comments addressed expanding the Greater
Yellowstone Area (GYA) to include Grand Teton National Park and
southwest Wyoming to protect a corridor for dispersal. Other comments
noted the GYA should not be included in critical habitat because it is
isolated from populations in Canada. Several peer reviewers noted that
it has not been established that the Southern Rockies population is
isolated, and therefore this area should be considered critical
habitat. Additionally, we received comments recommending we designate
critical habitat according to the lynx recovery outline, which included
the areas of concern noted above by peer reviewers in addition to areas
considered secondary or peripheral to recovery.
General comments also were concerned with our criteria, asserting
we should not restrict our designation solely to areas with confirmed
evidence of the presence of reproducing lynx populations because lynx
surveys have not been adequate to detect all reproducing lynx
populations. General comments also questioned why critical habitat
designation was restricted to areas of confirmed evidence of
reproducing lynx populations and that our revised critical habitat
designation should be extended to all occupied areas, areas currently
managed for lynx, all habitats supporting snowshoe hares, and
unoccupied areas in the historic range of the lynx.
Our response: Critical habitat is defined in section 3 of the Act
as: (1) The specific areas within the geographical area occupied by a
species, at the time it is listed in accordance with the Act, on which
are found those physical or biological features (a) essential to the
conservation of the species and (b) which may require special
management considerations or protection; and (2) specific areas outside
the geographical area occupied by a species at the time it is listed,
upon a determination that such areas are essential for the conservation
of the species. Not all locations with records of lynx presence are
essential for the conservation of the species; lynx are a wide-ranging
species, and areas containing periodic records that lack evidence of
reproducing populations are not considered essential to the species
(see Criteria Uses to Identify Critical Habitat section below). In that
section of the proposed and final revised critical habitat rules, we
describe in detail the parameters used for delineating areas that
contain the physical and biological features essential to the
conservation of lynx, as required by the definition of critical habitat
when considering occupied areas. We also determined that occupied areas
containing the features essential to the conservation of lynx support
the majority of recent lynx records and evidence of breeding lynx
populations since 1995.
We relied on records since 1995 to ensure that the revised critical
habitat designation is based on the best available data that most
closely represents the current status of lynx in the contiguous United
States and the
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geographic area occupied by the species. We recognize that adequate
surveys to confirm the presence of lynx populations have not occurred
everywhere throughout the species' range; however, no information was
provided to us during the public comment periods to suggest where there
might be locations with undetected breeding populations that we should
more closely evaluate for designation as critical habitat other than
the areas we already considered. We determined that the additional
areas suggested by commenters are secondary or peripheral areas not
essential to the conservation of the lynx.
While reviewing our original critical habitat proposal published on
November 9, 2005 (70 FR 68294), we determined that habitat in the GYA
contained the physical and biological features essential to the
conservation of lynx; in addition, the GYA has a long history of lynx
presence and reproduction, and its geographic location connects lynx
populations in Canada to lynx habitat in Colorado and Utah. However, we
designated areas within the GYA that contain the physical and
biological features essential to lynx in sufficient quantity and
spatial arrangement as demonstrated by their consistent use by lynx.
The entire GYA may be permanently or intermittently occupied by lynx.
Lynx may expand into Grand Teton National Park and additional areas in
southwestern Wyoming not in the current critical habitat designation,
but we have no indication that the habitat contains the physical and
biological features essential to the species in necessary quantities to
support populations of lynx.
The methodology we used in defining areas for lynx critical habitat
did not mirror that used for the lynx recovery outline, but did reflect
the biological concepts considered in the recovery outline. We used the
best scientific information available in determining which areas
contained the features essential for the conservation of lynx. As
explained on pages 10869 to 10871 of the proposal to revise critical
habitat (February 28, 2008; 73 FR 10860), the areas we determined to be
essential for the conservation of lynx do not include all the areas
identified in the recovery outline. The criteria we used for
determining areas essential to the conservation of lynx for the revised
critical habitat designation are based on the critical habitat
requirements of the Act, which are more selective than those used for
delineating the recovery areas in the lynx recovery outline. The
recovery outline more broadly encompasses older records of lynx and
gave less weight to direct connectivity with Canada, although in the
recovery outline it was recognized that maintaining connectivity with
Canadian lynx populations was important. Furthermore, the areas in the
recovery outline were mapped conceptually, include substantial areas
that do not contain the physical and biological features essential for
lynx or are both unoccupied and not essential for lynx conservation,
and therefore do not meet the definition of critical habitat. We
refined our mapping for the purposes of designating critical habitat in
order to meet the statutory requirements associated with critical
habitat. As a result, areas determined to be essential to the
conservation of lynx for the purposes of critical habitat did not
include all the areas delineated in the recovery outline.
The Kettle Range in north-central Washington historically supported
lynx populations (Stinson 2001, pp. 13-14), and boreal forest habitat
within the Kettle Range appears to contain habitat for lynx; however,
there is no evidence that the Kettle Range is currently occupied by a
reproducing lynx population (Koehler 2005 entire); therefore, it did
not meet the methodology we used for determining occupancy (see
Criteria Used To Identify Critical Habitat in the proposed rule,
February 28, 2008; 73 FR 10860). In addition, while the Kettle Range
contains physical and biological features important to lynx, its
spatial configuration and quantity of habitat do not appear to be
sufficient to support a breeding population of lynx.
In the Southern Rockies, it is still uncertain whether a self-
sustaining lynx population will become established as a result of
Colorado's reintroduction effort (Shenk 2007, p. 18). We recognize that
this reintroduction has been an effort to recover the lynx in Colorado;
however, the Southern Rockies contain marginal habitat, are on the
southern limit of the species' range, and have not been shown to
support a breeding population of lynx. Therefore, we find that habitat
in Colorado is not essential to the conservation of species.
(3) Comment: Some peer reviewers commented that wildfire prevention
and suppression activities would not be precluded by critical habitat
designation and that areas occurring within the wildland-urban
interface (WUI) should not be excluded or exclusions should be limited
to narrowly defined areas in the immediate vicinity of structures. Some
general comments stated that WUI areas should be included in critical
habitat because urban interface concerns could be used as an excuse to
allow developmental sprawl and meet timber harvest quotas. Commenters
raised concerns that lynx habitat management would increase wildfire
risk to forests and communities and requested that WUI areas be
excluded from critical habitat designation. Other commenters noted that
recent forest fires eliminated PCEs in some areas, so removal of those
lands from critical habitat designation is justified. Other commenters
requested that additional critical habitat be designated as buffers
against fire-produced habitat loss.
Our response: Areas within the WUI are designated as lynx critical
habitat as described in this rule. Wildfire is not thought to be a
threat to lynx, and often results in beneficial effects when burned
areas regenerate into lynx foraging habitat. As described in the final
rule listing the lynx (March 24, 2000, 65 FR 16052), natural fire plays
an important role in creating the mosaic of vegetation patterns, forest
stand ages, and structure that provide good lynx and snowshoe hare
habitat, particularly in the western Great Lakes region and in the
western mountain ranges of the United States (Agee 2000, pp. 47-56).
Currently, WUI areas are defined by a variety of methods varying
from the defensible space immediately surrounding structures out into
forest areas within several miles of communities. The designation of
critical habitat will not prohibit protection of defensible space
around homes or the WUI. The regulatory provisions of critical habitat
affect actions on Federal lands or with a Federal nexus. We expect that
a majority of urban interface fuels projects would occur under the
authority of the U.S. Forest Service (USFS). The Northern Rockies Lynx
Management Direction (NRLMD) amending the National Forest's management
plans to protect lynx addresses additional fuels reduction projects in
areas within the WUI. In our analysis of the NRLMD (USFWS 2007, pp. 67-
68) during section 7 consultation with the USFS, we determined that
even with additional fuels reduction, the management in the NRLMD would
provide for the recovery of lynx in these areas. Areas burned may still
contain the physical and biological features essential to lynx; those
areas still represent boreal landscapes supporting a mosaic of
differing successional forest stages.
We are designating all habitat that meets the criteria for critical
habitat, i.e., known to be occupied at the time of listing and
containing the physical and biological features essential to the
conservation of the species. Neither the
[[Page 8620]]
Act nor the implementing regulations provide for designating additional
areas as buffers.
(4) Comment: Some peer reviewers suggested that the proposed
revised rule incorrectly characterized lynx foraging habitat,
particularly in the western critical habitat units, by failing to
highlight the importance of mature, multistoried forest stands for lynx
in this area.
Our response: Recent studies have shown that mature, multistoried
stands are important foraging habitat for lynx in Unit 3, and they are
likely important in Units 4 and 5 as well. We have added language to
clarify this in the final rule.
(5) Comment: Some peer reviewers felt that statements in the
proposed revised rule concerning the low sensitivity of lynx to forest
management practices were misleading.
Our response: The statement in the proposed revised rule raised by
commenters relates to ``matrix habitat,'' which is habitat that
surrounds patches of foraging and denning habitat. Matrix habitat, by
definition, is habitat that is crucial for preserving the ability of
lynx to move between foraging and denning areas. However, the
vegetative condition and structure of matrix habitat is not relevant to
its value. For this reason, we do not foresee the need for prescriptive
management for lynx in matrix habitat beyond maintaining the ability
for lynx to move through this habitat to access other habitat types
within a home range. We do recognize that lynx are sensitive to forest
management practices in foraging and denning habitat and that forest
management activities can have significant positive and negative
impacts on lynx depending on the nature and timing and activities.
(6) Comment: Some commenters expressed that seasonal differences in
lynx habitat preference is poorly articulated in the proposed revised
rule. One commenter pointed out that lynx starvation in northwestern
Montana during late winter-early spring is tied to the abundance and
quality of winter habitat (mature, multistoried forest) and is the
primary issue for lynx conservation in this area.
Our response: Lynx use a variety of habitat types and conditions
during the year, which is why we drew the boundaries of the critical
habitat units to include entire landscapes of boreal forest in a
variety of successional stages that account for year-round habitat
needs.
(7) Comment: Several peer reviewers and other commenters noted the
important role that private lands play in lynx conservation and stated
that the final rule should better define the degree to which private
lands contribute to lynx persistence.
Our response: Through the process of developing our proposed
revised rule and subsequent modifications, we determined which lands
contain features essential to the conservation of lynx. Private lands
were included because of their value for lynx conservation. The
relative contribution of private lands to lynx conservation varies
between the five revised critical habitat units. Unit 1 is almost
entirely comprised of private land, and therefore private lands provide
almost the entire lynx habitat in this area. Conversely, Units 4 and 5
have relatively little private land, with Federal lands providing the
bulk of lynx habitat. Units 2 and 3 have a mix of private, Federal, and
State lands. We recognize the essential nature of private lands for
lynx conservation where we are designating those lands as critical
habitat. We have retained private lands in this final designation in
all cases except where we determined, under section 4(b)(2) of the Act,
that the benefits of excluding specific areas were greater than the
benefits of including those areas in the designation (see Application
of Section 4(b)(2) of the Act for more information).
(8) Comment: Some peer reviewers indicated that the statement in
the proposed revised rule that snowshoe hares must be present over a
large proportion of the landscape in order for that landscape to
support lynx is incorrect. Reviewers cited the presence of lynx in the
GYA and Northern Rockies as examples of lynx populations that exist
despite the landscape not being dominated by forest types supporting
snowshoe hares.
Our response: While we still highlight that the proportion of the
landscape that supports snowshoe hares is important, we acknowledge
that the proportion of the landscape that must support snowshoe hares
in order to support lynx is not known with certainty. Lynx populations
may persist in some mountainous areas despite snowshoe hares occurring
in relatively small and isolated patches. We have clarified this point
in this final rule.
(9) Comment: One peer reviewer recommended that the primary
constituent element (PCE) identified for lynx be broadened to include
multistoried stands of mature conifers with boughs that touch the snow
surface, as these are important foraging habitats in Montana and
elsewhere in the West.
Our response: We agree, and we have provided clarification to that
portion of the PCE in this final designation.
(10) Comment: One peer reviewer stated that the definition of
denning habitat in the proposed revised rule was not broad enough to
capture all of the den sites used by lynx in Montana.
Our response: The description of denning habitat in the proposed
revised rule captures the type of habitat most used by lynx for denning
in the contiguous United States. We believe that our description
adequately captures lynx denning habitat for the purposes of
delineating critical habitat in Montana and in other critical habitat
units.
(11) Comment: Several peer reviewers and one commenter provided
views on the relative importance of Tribal lands for lynx conservation.
Some thought we should have included some Tribal lands in the proposed
revised rule. We received several comments, primarily from Tribes,
recommending that all Tribal lands be excluded.
Our response: In accordance with Secretarial Order 3206, ``American
Indian Tribal Rights, Federal-Tribal Trust Responsibilities, and the
Endangered Species Act'' (June 5, 1997); the President's memorandum of
April 29, 1994, ``Government-to-Government Relations with Native
American Tribal Governments'' (59 FR 22951); Executive Order 13175
``Consultation and Coordination with Indian Tribal Governments;'' and
the relevant provision of the Departmental Manual of the Department of
the Interior (512 DM 2), we believe that fish, wildlife, and other
natural resources on Tribal lands are better managed under Tribal
authorities, policies, and programs than through Federal regulation
wherever possible and practicable. Such designation is often viewed by
Tribes as an unwanted intrusion into Tribal self governance, thus
compromising the government-to-government relationship essential to
achieving our mutual goals of managing for healthy ecosystems upon
which the viability of threatened and endangered species populations
depend.
We contacted all Tribes potentially affected by the proposed
revised designation and met with some of them to discuss their ongoing
or future management strategies for lynx. Several Tribes subsequently
submitted letters requesting exclusion based on their sovereign rights
and concerns about the economic impact and effects on their ability to
manage natural resources. As described in our proposed revised rule, we
believe that conservation of lynx can be achieved without including
Tribal lands within the revised critical habitat units. We determined
that these lands are not essential to the conservation of lynx, but
also, many of the Tribes have
[[Page 8621]]
management plans that provide for lynx habitat needs. The Tribal lands
included in the proposed revised designation are found only in the
Maine, Minnesota, and Montana units and the size of the areas are
relatively small (approximately 223, 187, and 898 km2,
respectively [86, 72, and 347 mi2]). We are excluding these
Tribal lands from this final designation under section 4(b)(2) of the
Act. See Exclusions Under Section 4(b)(2) of the Act for a discussion
of why these lands have been excluded.
(12) Comment: Some peer reviewers and commenters recommended we use
lynx analysis unit (LAU) boundaries as defined by some agencies to
define the critical habitat boundaries, because they used habitat-based
processes to identify the best lynx habitat.
Our response: We agree. After receiving numerous comments to this
effect, we solicited lynx habitat data and LAU boundary data from
Federal and State agencies, as well as private companies in and around
the proposed revised critical habitat in Units 2, 3, 4, and 5. We then
revised the critical habitat boundary to more closely reflect where
lynx habitat occurs and followed LAU boundaries to the extent
practicable (e.g., where doing so would not leave out significant lynx
habitat or include significant areas of non-lynx habitat). These
potential modifications were announced to the public when we announced
the availability of the DEA and the draft environmental assessment (73
FR 62450) on October 21, 2008.
(13) Comment: Some peer reviewers questioned the need to consider
climate change in a critical habitat designation. Other peer reviewers
and commenters stated the need to designate critical habitat in high
elevation habitats that are currently unsuitable for lynx occupancy but
may become suitable with climate changes. Other commenters stated that
climate change will render some proposed areas unsuitable; therefore,
these areas should not be included in the designation. One commenter
requested an analysis of climate change effects on each of the
microclimes included in the Minnesota proposed critical habitat.
Our response: We acknowledge that climate change could change the
suitability of lynx habitat in the future. However, we are required to
designate critical habitat based upon the best available scientific and
commercial data at the time that we finalize the designation. At this
point in time, reliable projections of future climate in lynx habitat
in the contiguous United States are not available. However, for
mountain-dwelling species like lynx, we conclude that higher elevation
habitat is likely to become increasingly important in the face of
climate changes. Designated critical habitat units include the highest-
elevation habitat in the areas, and these areas would likely become
more important to the extent lynx distribution and habitat shift upward
in elevation as temperatures increase. High elevation habitat was
included in the proposed designation, and we have determined it is
appropriate to include these areas in the final designation.
General Issues and Responses
(1) Comment: We received numerous comments concerning possible
restrictions imposed by critical habitat designation on economic,
recreation, forest management, predator control, infrastructure, and
energy transmission activities on private and public lands. Some
commenters are concerned the designation provides a mechanism for
increased third party litigation, and some asserted the designation of
critical habitat constitutes an uncompensated taking of private
property and is therefore illegal.
Our response: Critical habitat has a direct regulatory impact on
the actions of Federal agencies only. Therefore, a critical habitat
designation on private land has no regulatory impact on actions carried
out by landowners unless they seek Federal funding or a Federal permit
to carry out those actions. For example, if landowners must obtain a
permit from the U.S. Army Corps of Engineers (Corps) under section 404
of the Clean Water Act (33 U.S.C. 1251 et seq. ) to carry out an action
on their land, the Corps must consult under section 7 to evaluate the
effects that the permitted activity may have on critical habitat. Even
then, the designation may only have a substantial impact on the
activity if it is likely to result in the destruction or adverse
modification of the critical habitat. It is the responsibility of the
Federal agency, not the private landowner, to initiate the consultation
with the Service.
The Act prohibits Federal agencies from carrying out actions that
would destroy or adversely modify critical habitat. A Federal action
(e.g., winter recreation, energy transmission, mining, or road
construction) that is not likely to cause destruction or adverse
modification of lynx habitat may not be materially affected by a
critical habitat designation. Federal action agencies must evaluate the
potential effects of each action on its own merits. If a Federal action
would result in destruction or adverse modification of lynx habitat,
the Service would suggest reasonable and prudent alternatives to avoid
the destruction or adverse modification of critical habitat.
Section 4(a)(3) of the Act requires that critical habitat be
designated for listed species. The designation of critical habitat for
lynx may increase the number of lawsuits brought forward by citizens
opposed to certain actions. Although this is possible, these lawsuits
may only have merit if the Federal agency that is funding, authorizing,
or carrying out the action does not adequately consider its potential
effects to critical habitat, or consult, as appropriate, with the
Service in making its final decision.
The promulgation of a regulation does not take private property
unless the regulation denies the property owners all economically
beneficial or productive use of their land. Further, in accordance with
Executive Order 12630 (Government Actions and Interference with
Constitutionally Protected Private Property Rights), we analyzed the
potential takings implications of designating critical habitat for the
lynx in a takings implications assessment (TIA), which is available on
request. The conclusion in the TIA was that the possibility for take of
private property due to designation of critical habitat for lynx is
remote.
(2) Comment: We received several comments stating that the proposed
critical habitat designation area should be smaller, or that no
critical habitat should be designated. These comments contained little
explanation to support the recommendations. Other comments indicated
that the area designated for critical habitat in Minnesota was too
small to be significant to lynx survival.
Our response: Section 4(a)(3) of the Act requires that critical
habitat be designated for listed species. The lynx was listed as a
threatened species under the Act on March 24, 2000 (65 FR 16052). Under
section 4(b)(2), the Act requires that a critical habitat designation
be made on the basis of the best scientific data available and after
taking into consideration the economic impact and any other relevant
impact of specifying any particular area as critical habitat. In order
for us to consider excluding a particular area from a critical habitat
designation based on economic or other relevant impacts, we need
geographic specificity and supporting documentation that can be
analyzed. The comments did not provide this information, making
analysis for exclusion or explanation of inclusion impossible. In
general, after considering the data available, we proposed areas for
critical habitat that represented the breadth of ecological settings
and sufficient number of
[[Page 8622]]
populations to satisfy the biological requirements of the lynx and the
statutory requirements of the Act.
We believe that the 8,200 mi2 (21,238 km2) of
land in Minnesota proposed for critical habitat is a significant part
of the designation. The high-quality lynx habitat proposed in the
Minnesota unit comprises 20 percent of the total area proposed for
critical habitat in the contiguous United States. In addition, the
Minnesota unit is the only area in the Great Lakes region with strong,
long-term evidence of the persistence of lynx populations. As we
explained in detail in the Criteria Used To Identify Critical Habitat
section in the proposed rule, the inclusion of the Minnesota unit is
important in applying the conservation principles of representation,
resiliency, and redundancy to the critical habitat designation for
lynx. Focusing lynx conservation efforts, including critical habitat
designation, on areas with a long-term presence of reproducing lynx and
connectivity to populations in Canada has the greatest chance of
ensuring the continued persistence of lynx in the contiguous United
States.
(3) Comment: One commenter indicated that indirect effects of State
and local regulations may follow critical habitat designation.
Our response: We recognize that State and local governments have
the authority to promulgate regulations or local rules related to a
critical habitat designation. However, listed species and their
habitats are protected by the Act regardless of whether they are in
areas designated as critical habitat. The draft economic analysis (DEA)
addressed the potential for newly promulgated regulations or rules
resulting from our critical habitat designation; none were anticipated.
Therefore, we do not anticipate additional regulatory restrictions as a
result of State or local regulations.
(4) Comment: Comments included concerns about increased threats to
lynx and lynx habitat due to development, vegetation management by
Federal agencies that destroys snowshoe hare habitat, and the
introduction and proliferation of wolves.
Our response: Critical habitat designation identifies the specific
areas within the geographical area occupied by the species that contain
the physical and biological features essential to the conservation of
the species, and which may require special management considerations or
protection. Designation of critical habitat helps focus conservation
and recovery activities. The designation of critical habitat by itself
does not achieve conservation or recovery of a species, nor does it
prohibit development or forest management activities that alter
snowshoe hare habitat. The Act does not automatically restrict all uses
of critical habitat, but only imposes restrictions under section
7(a)(2) on Federal agency actions that may result in destruction or
adverse modification of critical habitat. Each Federal action,
including development, permitting, funding, and forest management,
would be evaluated by the involved Federal agency, in consultation with
the Service, in relation to its impact on the critical habitat. If,
after evaluation and consultation, it is concluded that a proposed
action is likely to result in the destruction or adverse modification
of critical habitat, the Service is required to suggest reasonable and
prudent alternatives to the action that would avoid the destruction or
adverse modification of critical habitat.
To a private property owner, the designation of critical habitat
becomes important only when undertaking an activity that is authorized,
funded, or completed by a Federal agency. Conservation actions,
however, are not limited to Federal agencies. Lynx are protected on
Federal and non-Federal lands through prohibitions and constraints of
section 9 of the Act, regardless of critical habitat designation.
Although consultation with the Service is not specifically stated in
the Act, non-Federal activities, including development and forest
management, may require permitting by the Service if an action would
result in a taking of the species as described under section 9 of the
Act.
Other predator species could affect lynx negatively by competing
for resources, direct predation of lynx, or both. Lynx are vulnerable
to competition for prey because of a selective diet that relies heavily
on snowshoe hare. Wolf prey competition is unlikely based on the minor
inclusion of small mammals in their diet. Wolves could have a positive
influence on lynx by killing coyotes that compete with lynx for rabbits
and hares. Predation of lynx by wolves has not been identified as a
threat to the species.
(5) Comment: We received several comments requesting additional
hearings, public meetings, or an extension of the public comment
period. Some commenters stated that public participation was precluded
by not adequately notifying landowners about the proposal and not
having a completed economic analysis at the time the proposed rule was
published. Some commenters felt that access to listing documents,
including maps, was not convenient and that the Federal Register was an
inadequate mechanism for notifying the public of the proposal.
Our response: We made a concerted effort to provide public notice
of this rulemaking. Because of the large scope of the proposed
designation it was not possible to contact each landowner. However, we
issued a widely-disseminated news release regarding our proposal, and
published legal notices in major newspapers in areas involved in the
proposal. We published Federal Register notices, including the critical
habitat proposal, reopening of the comment period, and notice of
availability of draft documents. We sent hundreds of letters, cards,
and e-mails to State and Federal agencies, Tribal governments, local
governments, private individuals, private companies, non-government
organizations, and elected officials announcing the proposal, document
availability, and public meetings and hearings. We also issued press
releases concurrent with Federal Register notice announcements. A web
page of lynx critical habitat materials and information has been
maintained at http://mountain-prairie.fws.gov/species/mammals/lynx/
criticalhabitat.htm.
We received several requests for public hearings during the initial
comment period for the proposed rule. Hearings were conducted as
required under section 4(b)(5)(E) of the Act. Public hearings on the
published proposal were held on November 7, 2008, in Kalispell,
Montana, and November 13, 2008, in Cody, Wyoming. Open houses and
meetings on the published proposal were held on March 25, 2008, Duluth,
Minnesota; April 23, 2008, Bloomington, Minnesota; May 20, 2008, Grand
Marais, Minnesota; March 25, 2008, Twisp, Washington; and April 2, 2008
and November 10, 2008, Old Town, Maine. In the proposed rule we
provided contact information for four Service Field Offices for anyone
seeking further information on the proposed revised critical habitat
designation. Therefore, we believe that we made a conscientious effort
to reach all interested parties and provide avenues for them to obtain
information concerning our proposal and supporting documents.
We recognize the scale of the maps published in the Federal
Register made it difficult to accurately identify whether particular
parcels of land were included within the proposed designation. However,
the descriptions that began on page 10881 of the proposed rule (73 FR
10860; February 28, 2008) were provided to assist the public in
understanding exactly which lands were proposed as critical habitat.
[[Page 8623]]
We acknowledge that a draft economic analysis (DEA) was not
available to the public at the time of publishing the proposed rule in
the Federal Register. We considered it important to release the
proposed rule to the public for review and comment as soon as possible.
The DEA was released for public review as soon as it was completed. The
comment period was then reopened for 30 days, and the public had an
opportunity to submit comments on both the proposed rule and the
accompanying DEA.
(6) Comment: A commenter stated that the proposed critical habitat
rule misrepresented the legal boundaries of Cook County townships in
Minnesota leading to a lack of citizen participation. A commenter
stated that we misrepresented critical habitat effects on private
property, specifically that designation imposes a take permit system
for non-Federal activities on private land, thereby limiting public
participation and violating the National Environmental Policy Act
(NEPA) (42 U.S.C. 4321 et seq.).
Our response: We disagree on both issues. We believe that detailed
and sufficient information was provided to the public that clearly
delineated boundaries for critical habitat. The proposal included a
statement on page 10882 that critical habitat does not include towns or
populated areas as they now exist. The term ``now exist,'' is a
function of the municipal boundaries that are not delineated by the
Service but established, in most cases, by non-Federal, local entities.
Numerous areas in Minnesota, including in Cook County, are not included
in the critical habitat area. More detailed information on the
boundaries of the proposed critical habitat was included on pages 10881
through 10895, with specific delineations for Minnesota on pages 10886
and 10887.
Regulatory implications for private lands were clearly stated in
the proposed rule. The designation of critical habitat for the lynx
does not affect land ownership or establish a conservation area, does
not allow the government or public to access private lands, and does
not require (although it encourages) implementation of restoration,
recovery, or enhancement measures by a landowner for the lynx. In
situations where a landowner seeks Federal agency funding or
authorization of an activity that may affect the lynx or its critical
habitat, the Federal agency is responsible for complying with section 7
of the Act to determine the impacts of its action on the lynx and its
critical habitat. If Federal authorization or funding of the proposed
private action is likely to result in the destruction or adverse
modification of lynx critical habitat, the Service and the Federal
action agency, in coordination with the landowner as an applicant,
would cooperate in the development of a reasonable and prudent
alternative that avoids that outcome and meets other specific criteria
set forth in the regulations. The designation of critical habitat does
not institute a permit requirement for the private landowner whose
activity results in the take of a listed animal species. Any
appropriate permitting became necessary at the time the lynx was listed
in 2000.
As stated in the response to Comment 5, we made a conscientious
effort to reach all interested parties and provide avenues for them to
obtain information, including an environmental assessment for NEPA
compliance, and submit comments concerning our proposal.
(7) Comment: Many commenters did not believe that the lynx
qualified as a threatened species. Some commenters thought the species
should be delisted, and others thought it should be listed as
endangered. Some commenters believe that designation of critical
habitat is necessary to recover lynx, but that designation of critical
habitat prior to completion of a lynx recovery plan or other lynx
conservation guidance is premature. Other commenters were concerned
about the effectiveness of critical habitat designation and the
ineffectiveness of single species management. Commenters stated that
critical habitat designation was in conflict with Federal mining laws,
and that other Federal agencies were not complying with the Endangered
Species Act, Multiple-use Sustained-yield Act of 1960 (16 U.S.C. 528 et
seq.), and others. Some commenters stated that the 2005 critical
habitat rule was supported by the record and should not be changed.
Our response: The lynx was listed as a threatened species under the
Act on March 24, 2000 (65 FR 16052). Section 4(a)(3) of the Act
requires that critical habitat be designated for listed species. This
rule addresses the required critical habitat designation; listing
actions are not part of the critical habitat rule.
On January 15, 2008, the U.S. District Court for the District of
Columbia ordered the Service to complete a final rule for revised
critical habitat by February 15, 2009. A recovery plan need not be
completed before critical habitat is designated, but is useful in
guiding the designation if one exists. The drafting and finalization of
a recovery plan for lynx has not been feasible due to work load and
economic constraints. However, the lynx recovery outline was used to
guide the proposed revised lynx critical habitat designation. The areas
we considered in our methodology for defining critical habitat for the
lynx did not mirror the exact areas identified in the recovery outline,
but did reflect the biological concepts considered important in the
recovery outline. We used the best science available in determining
areas that contained the features essential for the conservation of
lynx. Designation of critical habitat does not in itself bring about
recovery, but designation of critical habitat can help focus
conservation and recovery activities for listed species by identifying
areas essential to conserve the species. Specific management
recommendations for areas designated as critical habitat are most
appropriately addressed in subsequent recovery and management plans.
We agree that research is important, and that managing for a single
species may not provide the maximum benefit for a biological community
or an ecosystem as a whole. The purpose, however, of the this
rulemaking is to comply with a directive of the Act to designate areas
with the biological and physical features necessary for the
conservation of the lynx.
An analysis of the possible contradictions of statutes or the
compliance of Federal agencies with relevant or unrelated laws is not
within the purview of this critical habitat rule.
While some believe that our previous designation was satisfactory,
we reviewed the previous critical habitat rule for the lynx (71 FR
66007; November 9, 2006) after questions were raised about the
integrity of the scientific information used and whether the decision
made was consistent with the appropriate legal standards. We determined
that it was necessary to revise the critical habitat designation based
on that review.
(8) Comment: Some commenters questioned the presence of primary
constituent elements (PCEs) for lynx in specific areas proposed as
critical habitat, and recommended that the proposal be refined.
Specific areas cited included the shore of Lake Superior, State of
Wyoming, existing and proposed mining areas, and matrix habitat. Other
commenters asserted that the boundaries we used (such as the 4,000-foot
(ft), 1,219-meter (m)) elevation contour or highways were arbitrary and
overly broad.
Our response: We reviewed available maps, peer and public comments,
and biological information received during the public comment period.
Subsequently, portions of units that did not contain the PCE or where
[[Page 8624]]
development was concentrated were removed from the final designation.
Any developed areas and the land on which structures are located inside
critical habitat boundaries are excluded from critical habitat
designation as is described in this final rule. In some areas, unit
boundaries were expanded to incorporate adjacent lynx habitat that had
been inadvertently left out of the proposed critical habitat.
Designated critical habitat areas in Wyoming (Greater Yellowstone
Area (GYA)--Unit 5) have confirmed records of reproducing lynx and
contain lynx habitat similar to the Northern Rockies. Lynx are
generally associated with the Rocky Mountain Conifer Forest vegetation
class in Wyoming, which is dominated by subalpine fir, Engelman spruce,
and lodgepole pine. As described in detail in the proposed rule on page
10866, lynx habitat in the GYA is typically found in a widely scattered
mosaic of matrix habitat. Individual lynx adjust their home range to
incorporate land that is not typical lynx foraging habitat, but is used
primarily for travel. The need for matrix habitat designated as
critical habitat is most pronounced in the GYA, but matrix habitat is
important in all designated areas to retain unimpeded movement of lynx
between patches of suitable foraging and denning habitats.
Roads and other human-made structures were used as boundaries for
critical habitat where they clearly delineated areas with confirmed
records of lynx reproduction and the presence of PCEs. In the
Washington State Unit, the 4,000-ft (1,219-m) elevation contour is used
to delineate the critical habitat boundary because the features
essential to the conservation of lynx, the majority of lynx records,
the evidence of reproduction, and the boreal forest types are found
above 4,000 ft in Washington State.
(9) Comment: Comments were received questioning why changes were
made from the previous (2005) rule. Specific changes noted were the
identification of lands requiring special management; inclusion in the
current proposed rule of lands previously exempted under sections
4(b)(2) and 3(5)(a) of the Act; and the expansion of critical habitat
beyond the boundaries of Voyageurs National Park and the Boundary
Waters Canoe Area in Minnesota.
Our response: As explained in the ``Previous Federal Actions''
section on page 10863 of the February 28, 2008 proposed rule, we
determined that it is necessary to revise the November 9, 2006, final
critical habitat rule as a result of questions that were raised about
the integrity of scientific information used in the 2006 designation
and whether the decision made was consistent with the appropriate legal
standard. As a result, we reconsidered all the lands that were
designated, lands that were not designated under section 3(5)(a) of the
Act, and lands excluded under section 4(b)(2) of the Act in the 2006
designation.
(10) Comment: Some commenters indicated that designation provides
little or no additional benefit beyond the listing itself, and that
critical habitat is not necessary because conservation occurs through
other existing means such as the Lynx Conservation Assessment and
Strategy (LCAS), National and State Forest Plans, and other actions.
Other commenters expressed their support for critical habitat because
the designation provides for educational and research opportunities,
recreation, and economic and forest management benefits.
Our response: Compliance with section 4(a)(3) of the Act
necessitates that critical habitat be designated for listed species. It
is true that a species and habitat upon which it depends are protected
under provisions of the Act whether critical habitat is designated or
not. However, a critical habitat designation identifies lands on which
are found the physical and biological features essential to the
conservation of the species that may require special management
considerations, and areas outside the geographical area occupied by the
species at the time of listing that are essential to the conservation
of the species. The identification of these essential areas is
important to guide management and provide for the recovery of the
species.
As explained in detail in the Benefits of Designating Critical
Habitat section of this final rule, the consultation provisions under
section 7(a) of the Act constitute the regulatory benefits of critical
habitat. Federal agencies must consult with the Service on
discretionary actions that may affect a listed species, and in
addition, analyze the effects of an action to critical habitat. The
analysis of the effects to critical habitat is a separate and different
analysis from that of the effects to the species, and may provide
greater regulatory benefits to the recovery of a species than listing
alone.
Since the lynx was proposed for listing in 1999, the U.S. Forest
Service (USFS), Bureau of Land Management (BLM), and National Park
Service (NPS) have been instrumental partners with the Service in
conservation and recovery of the lynx, and in the development of the
Lynx Conservation and Assessment Strategy (LCAS) (Reudiger et al.
2000). The LCAS constitutes the best available information on
conserving lynx, and identifies potential risk factors to lynx and lynx
habitat and management guidance to reduce these risks. The Service and
USFS are signatories to an agreement protecting lynx on national forest
lands until all Land Resource Management Plans (LRMPs) for the relevant
forests are amended to include the direction consistent with the LCAS.
The National Forests in Units 2, 3, and 5 have all amended their forest
plans, and the Okanogan-Wenatchee National Forest in Unit 4 is in the
process of amending its LRMP. No Federal lands are included in the
critical habitat designation in Unit 1.
During the critical habitat designation process, we evaluated
national forest areas to determine if they meet the definition of
critical habitat (i.e., if they contain physical or biological features
essential to conservation of the lynx and if these essential features
may require special management or protection). National forest lands
included in this final rule were found to have the essential features
for lynx. The essential features on lands covered by management
programs or plans that have been revised or amended to adopt the LCAS
do require special management or protection, and therefore meet the
definition of critical habitat in section 3(5)(A) of the Act.
Lands proposed as critical habitat can be excluded from a final
critical habitat designation under section 4(b)(2) of the Act where
conservation is addressed by existing protective actions and the
benefit of exclusion outweighs the benefit of inclusion, unless the
failure to designate such area will result in the extinction of the
species concerned. The ``Benefits of Excluding Non-Federal lands with
Conservation Partnerships'' section in this rule details our analysis
of excluding or including non-Federal lands.
Critical habitat designation serves to educate the public and State
and local governments regarding the potential conservation value of
certain areas. Clearly delineating areas helps focus and promote
conservation direction and actions. Critical habitat educational
benefits, in general, may be redundant with other actions requiring
significant public involvement, e.g., habitat conservation plans
(HCPs). It is not possible to state broadly that research, recreation,
and economies are benefitted by critical habitat designation. A listing
under the Act itself focuses research on the species and habitat needs.
[[Page 8625]]
Recreation benefits are relative to the type of activity and location.
Recreation or aesthetic benefits may come in the form of unquantifiable
personal enjoyment or satisfaction. Ancillary benefits and costs to
local economies were considered and described in the DEA to the extent
data were available.
(11) Comment: Some commenters questioned the adequacy of the
Environmental Assessment (EA) and other aspects of our compliance with
NEPA. They felt that the draft EA is lacking information, does not
address recovery, and does not address the full range of alternatives.
Some recommended an alternative that includes all core areas. Some felt
that we should prepare an Environmental Impact Statement (EIS) on this
action.
Our response: We have complied with the requirements of NEPA for
this critical habitat designation for lynx. An EIS is required only in
instances where a proposed Federal action is expected to have a
significant impact on the human environment. We prepared a draft EA and
a DEA of the effects of the proposed designation to determine whether
designation of critical habitat would have significant impacts. A
notice of availability for public review of the draft EA and DEA was
published on October 21, 2008 (73 FR 62450). The draft documents have
been available since that date on our Web site and by request from the
Service's Montana Field Office. We accepted public comment for 30 days
after the posting. Following consideration of public comments, we
prepared a final EA and determination that critical habitat designation
does not constitute a major Federal action having a significant impact
on the human environment. That determination is documented in our
Finding of No Significant Impact (FONSI). Both the final EA and FONSI
are available on our Web site (see ADDRESSES section of this rule).
The EA was prepared for this rule to identify alternatives,
identify and analyze significant issues, and determine whether
additional analysis was required in an EIS. Two alternatives were
considered in the EA: the No Action (Baseline) Alternative and the
Proposed Action. Two other alternatives were considered but not brought
forward for analysis. The two alternatives not considered further were:
(1) Critical habitat designation of all areas within the geographic
range of the lynx in the contiguous United States, and (2) designation
of all recovery areas (including core areas) as described in the lynx
recovery outline. These alternatives were not carried forward because
the Act specifies that, except in circumstances determined by the
Secretary, critical habitat shall not include the entire geographic
area that can be occupied by the species, and the recovery outline was
not analyzed as an alternative because it did not meet the criteria for
critical habitat defined in the proposed rule. For example, the
recovery outline identified the Kettle range in Washington State as a
core area, but the area has no recent, verified evidence of the
presence of a breeding lynx population, and does not meet the criteria
as defined in the proposed rule. We developed the proposed alternative
using the best available scientific information to reflect the
biological concepts considered important in the recovery outline, and
included identified core areas that have verified records of long-term
lynx occupation and reproduction.
The designation of critical habitat itself is not a recovery
action, but identifies geographic areas that have the primary
biological and physical elements necessary for conservation of lynx and
that may require special management. We recognize that designation of
critical habitat may not include all of the habitat area that may
eventually be determined to be necessary for the recovery of a species.
Critical habitat designations made on the basis of the best available
information will not control the direction and substance of future
recovery plans or planning efforts.
(12) Comment: We received a request to clarify that reservoir water
bodies are not included in the critical habitat designation.
Our response: The clarification that reservoirs are not included in
the designation has been included in the final rule.
(13) Comment: Several commenters recommended that we work with
Canada to limit trapping in Canada to conserve lynx and preclude the
need for critical habitat designation.
Our response: We agree that, where applicable, international
cooperation on conservation issues is important. Lynx, as listed in the
contiguous United States, are considered a unique conservation entity.
At this time, the lynx is not listed as an endangered or threatened
species in Canada. Lynx are harvested in Canada, and managed under
local and provincial game laws that include quotas determined by the
population status. At the time of listing in 2000, a lack or inadequacy
of regulatory mechanisms and habitat alteration were considered the
primary risks to the persistence of lynx in the contiguous United
States. Overutilization by trapping and hunting was not considered a
major threat to the species (65 FR 16078), and limiting trapping would
not preclude the need to designate critical habitat.
(14) Comment: According to the Maine Department of Inland Fisheries
and Wildlife, the Maine Unit was defined using many unverified records.
Some lynx locational information given to the Service by the Department
did not meet the accepted verification criteria as stated in the
proposed critical habitat rule (page 10870). The critical habitat
designation in Maine would be smaller if only verified records were
used.
Our response: As we explained on pages 10869-10870 of the proposed
rule (73 FR 10860, February 28, 2008), we used snow track records to
determine the area occupied by lynx in Maine, which are considered
unverified records, in addition to other types of verified records,
because of the stringent protocols used in confirming the tracks as
lynx and the minimal number of species in Maine with which lynx tracks
could be misidentified (McCollough 2006).
(15) Comment: Some commenters thought that the Lynx Conservation
Assessment and Strategy (LCAS) (Ruediger et al. 2000), Northern Rockies
Lynx Management Direction, and the Southern Rockies Lynx Management
Direction are inadequate as conservation tools and therefore should not
be used as a justification to exclude these areas from the designation.
Specifically, the LCAS does not provide for landscape continuity.
Our response: Lands covered by the LCAS are not being excluded from
critical habitat designation. The LCAS (Reudiger et al. 2000) assists
Federal agencies in planning activities and projects in ways that
benefit lynx or avoid adverse impacts to lynx and lynx habitat.
Conservation agreements between the Service and the USFS and BLM commit
the land management agencies to using the LCAS in determining the
effects of actions on lynx until Management Plans are amended or
revised to adequately conserve lynx. At the time it was written, the
LCAS provided the highest level of management and protection for lynx.
Since the LCAS was written, new information has become available and
research continues that should be taken into account by land managers.
Some of this new information was taken into account by the USFS in
revising plans under programmatic plan amendments (Northern and
Southern Rocky Mountain Lynx Amendments). All National Forests in the
critical habitat designation, except the Okanogan-Wenatchee in
Washington State,
[[Page 8626]]
amended their LRMPs to include the newer lynx direction. The amendment
process for the Okanogan-Wenatchee is under way. We analyzed the
amendment actions and determined that the management under them would
provide for the recovery of lynx in the geographic areas covered (USFWS
2007, entire).
The identified National Forest lands in the final rule were found
to have the essential features for lynx. The essential features, on
lands covered by management programs or plans that have been revised or
amended to adopt the LCAS, do require special management or protection,
and therefore meet the definition of critical habitat pursuant to
section 3(5)(A) of the Act. In addition, the consultation provisions
under section 7(a) of the Act constitute the regulatory benefits of
critical habitat. Federal agencies must consult with the Service on
discretionary actions that may affect a listed species, and, in
addition, analyze the effects of an action to critical habitat. The
analysis of the effects to critical habitat is a separate and different
analysis from that of the effects to the species, and considers the
effects of an action on the larger landscape scale of the critical
habitat unit as a whole.
(16) Comment: Some commenters indicated that the proposal is based
on past survey results and not on biological or ecological principles.
In addition, some indicated that past records of lynx presence are
insufficient in identifying occupied areas, and that lynx survey
results are inconsistent from State to State and from agency to agency.
Our response: As required by section 4(b)(2) of the Act, we base
our critical habitat designations on the best scientific data
available. Our criteria for determining the areas occupied by lynx are
described in the ``Criteria Used To Identify Critical Habitat'' section
on pages 10869-10870 of the proposed rule. We used available data
providing verified evidence of the occurrence of lynx and evidence of
the presence of breeding lynx populations as represented by records of
lynx reproduction. We find that evidence of breeding populations is the
best way to verify that the PCEs are present in sufficient quantity and
spatial configuration to meet the needs of the species, and qualify as
critical habitat. We focused on records since 1995 to ensure that the
critical habitat designation is based on the data that most closely
represents the current status of lynx in the contiguous United States
and the geographic area occupied by the species. We restricted the
available lynx occurrence dataset by accepting only verified recent
lynx records, because we wanted reliable data for the purposes of
evaluating areas and features for critical habitat designation. As
described in our response to Comment 14, above, in Maine we also
accepted unverified records in the form of snow tracks because of the
stringent protocols used in confirming the tracks as lynx and the
minimal number of species from which lynx tracks could be misidentified
in Maine.
(17) Comment: We received comments requesting clarification of the
criteria used for determining a ``self-sustaining population'' in the
proposed rule, and why definitions for ``self-sustaining populations''
differ from our Environmental Assessment for the rule and other Federal
agency conservation strategies such as the LCAS and National Forest
Plans.
Our response: Our use of the term ``self-sustaining population'' in
the proposed rule relates to populations that are able to maintain a
stable or naturally oscillating population structure composed of
breeding individuals derived from wild mating and births (rather than
introduced animals). A population that has demonstrated robustness to
natural fluctuations in prey abundance is a key to determining that it
is established. Our use of the term ``self-sustaining'' may differ from
other agencies' use due to the different objectives for conservation
strategies. The draft environmental assessment contained a section on
Criteria for Defining Essential Habitat that deferred to the proposed
critical habitat rule; a definition of ``self-sustaining'' or
``occupied'' was not provided in that document. The objective of the
LCAS is to achieve conservation of the species on USFS lands while
maintaining other uses of forest lands important to the mission of the
USFS. The objective of critical habitat is to identify the habitat that
is occupied by the species or essential to its conservation, that
contains the physical and biological features essential to the species,
and that may require special management considerations or protection.
(18) Comment: Some commenters thought that private or State lands
should be included or excluded based on conservation and management
agreements.
Our response: We determined that the benefit of excluding State
lands in Washington that are managed under the Washington Department of
Natural Resource's (DNR) Lynx Habitat Management Plan and lands in
Maine that are enrolled under the Healthy Forest Reserve Program (HFRP)
outweighs the benefit of designating them as critical habitat, as
allowed under section 4(b)(2) of the Act. As we describe in detail in
the Exclusions Under section 4(b)(2) section of this rule, the
Washington DNR Lynx Habitat Management Plan and the HFRP in Maine
provide certainty that the physical and biological features essential
to the conservation of lynx will be conserved. These programs are in
place, funding has been committed, and the specific intent of both
programs is the conservation and management of lynx; as a result we
have a high degree of certainty that both programs will be implemented
and that they will be effective in conserving lynx habitat.
We are not excluding any other areas from the designation except
Tribal lands, which we are excluding pursuant to Secretarial Order
Number 3206, as described in the proposed rule. We have determined that
no other lands will be excluded. We considered exclusions for
industrial forest lands in Maine and Montana included in draft
conservation agreements, lands owned by Plum Creek Timber Company in
Maine and Montana, and private and county lands in Minnesota. We value
the partnerships we have with these various landowners, and recognize
that their cooperation will be necessary to achieve recovery of the
lynx. We are not excluding these lands due to the lack of certainty
that the plans would effectively conserve the physical and biological
features essential to lynx. Additionally, a possibility exists that
section 7(a)(2) consultation on a future project having a Federal nexus
on any of these lands might result in a determination that an action
would result in the destruction or adverse modification of lynx
critical habitat.
We are not excluding Montana Department of Natural Resources and
Conservation lands in Montana that are under a draft Habitat
Conservation Plan for lynx and other listed species, nor are we
excluding Plum Creek lands in Maine that are part of the proposed
Moosehead Lake Concept Plan, because both of these efforts are still in
development and there is a lack of certainty that either effort will be
completed. However, we recognize the extensive planning and development
that have already been invested in both of these efforts to achieve
conservation of lynx and other species.
(19) Comment: Linkage corridors are important to protect.
Our response: We agree that providing protection for travel and
dispersal are important for maintaining lynx populations over time.
Critical habitat is
[[Page 8627]]
designated for the conservation of the primary constituent element
(PCE) essential to the conservation of the lynx and necessary to
support lynx life history functions. The PCE comprises the essential
features of the boreal forest types that provide, for example, prey,
reproduction and denning habitat, and snow conditions that give lynx
their competitive advantage. Critical habitat provides habitat
connectivity for travel within home ranges, and exploratory movements
and dispersal within critical habitat units.
Critical habitat in the final rule was delineated to encompass
occupied areas with verified reproduction and containing features
essential to the conservation of the lynx to provide connectivity
within the particular regional unit and to maintain direct connectivity
with lynx populations in Canada. Lynx populations in the contiguous
United States are influenced by lynx population dynamics in Canada, and
many of these populations in Canada are directly interconnected with
U.S. populations; therefore, retaining connectivity with the larger
lynx population in Canada is important to ensuring long-term
persistence of lynx populations in the United States.
(20) Comment. At a public meeting for the lynx critical habitat in
Spokane, the Service stated that the actual ``core'' for lynx is in
Canada. This contravenes our proposal that there are at least five
``critical'' or ``core'' areas in the northern United States.
Our response: The bulk of the lynx population is in Canada, which
can be considered the ``core'' of its range. However, in the lynx
recovery outline (Service 2005), we use the term ``core'' to define the
areas with the strongest long-term evidence of the persistence of lynx
populations in the contiguous United States. The recovery outline,
however, was not meant to address critical habitat designation and did
not identify the primary constituent element for lynx that require
special management. For the purposes of critical habitat designation,
we refrained from using the term ``core areas'' to avoid confusion with
the definitions used in the recovery outline (see the Relationship to
Recovery Outline section). In the Criteria Used to Identify Critical
Habitat section of the final rule, we clarified how the areas proposed
were determined. We referred to the recovery outline to identify the
different geographic areas important to the persistence of reproducing
populations of lynx in the contiguous United States. We then focused
our strategy on boreal forest landscapes of sufficient size to
encompass the temporal and spatial changes in habitat and snowshoe hare
populations to support interbreeding lynx populations or
metapopulations over time. We also considered the need for connectivity
among habitat patches within a geographical area, and connectivity with
the larger, more robust Canadian lynx populations. Based on the defined
criteria for critical habitat, the units roughly coincide with five of
the six ``core'' areas identified in the recovery outline.
(21) Comment: Plum Creek Timber Company requested that their
properties in Montana and Maine be excluded from the designation based
on multiple legal and policy grounds, including: (1) Landowner
conservation agreements that Plum Creek is party to provide habitat
protections beyond what would be achieved by critical habitat
designation; (2) economic impacts to Plum Creek warrant exclusion under
Section 4(b)(2) of the Act; and (3) technical and legal reasons, such
as that some of the Plum Creek lands in the designation are not lynx
habitat or do not exhibit the primary constituent element (PCE), and
therefore were erroneously included in the proposed rule.
Our response: We respond to Plum Creek's comments in a number of
different places in this rule. We analyzed the benefits of exclusion
and inclusion of Plum Creek lands based on their proposed participation
in private lands draft agreements (Maine Forest Products Council and
Montana Partnership) in the Exclusions under Section 4(b)(2) of the Act
section of this rule. We determined that the benefits of exclusion do
not outweigh the benefits of inclusion of Plum Creek lands, and that
the lands should remain in the critical habitat designation. Our
economic analysis found no basis for excluding Plum Creek lands due to
economic factors, including impacts associated with development at
Moosehead Lake in Maine. Little economic impact, to Plum Creek and
other private landowners, would exist due to the designation of
critical habitat. Significant economic impacts to Plum Creek existed
due to the listing of lynx; however these impacts would occur
regardless of critical habitat designation. Our specific responses to
Plum Creek's comments on our economic analysis can be found in comments
14, 15, 20, 21, and 32 below.
We also evaluated Plum Creek's request to exclude lands based on
its willingness to develop a habitat conservation plan for its proposed
Moosehead Lake development. We acknowledge that Plum Creek has
experience creating and implementing conservation plans, but this
experience does not justify an exclusion where the State of Maine's re-
zoning has yet to be completed and no specific subdivision or
development plans have been submitted to us for review. Given that the
development of a habitat conservation plan and an incidental take
permit has not been completed, we cannot rely on it as a basis for
exclusion. Finally, we note that Plum Creek, like others who have
requested exclusions, participates in forest certification programs,
such as Sustainable Forestry Initiative (SFI). Although participation
tends to demonstrate a commitment to resource stewardship, we were not
provided with required endangered species or lynx management plans for
review. Therefore, we were unable to determine, with reasonable
certainty or specificity, the degree to which land management practices
currently being employed benefit the lynx or its habitat.
Plum Creek asserts that some of their land does not contain the PCE
for lynx, does not qualify for critical habitat protection, and has
been erroneously included in the critical habitat designation. Plum
Creek specifically mentioned the Olney Block, a property in
northwestern Montana, as having too little lynx habitat to be
considered essential to the species. Plum Creek has real estate
development plans for this area and fears that designation would have a
negative impact on their plans. In considering the suitability of the
Olney Block property, we referred to our criteria for identifying the
PCE for lynx. Boreal forest habitats are the landscapes characterizing
PCE for lynx. Individual areas within a boreal forest system may
contain one or more of the following:
(a) Presence of snowshoe hares and their preferred habitat
conditions, which include dense understories of young trees, shrubs or
overhanging boughs that protrude above the snow, and mature
multistoried stands with conifer boughs touching the snow surface;
(b) Winter snow conditions that are generally deep and fluffy for
extended periods of time;
(c) Sites for denning that have abundant coarse woody debris, such
as downed trees and root wads; and
(d) Matrix habitat (e.g., hardwood forest, dry forest, non-forest,
or other habitat types that do not support snowshoe hares) that occurs
between patches of boreal forest in close juxtaposition (at the scale
of a lynx home range) such that lynx are likely to travel through such
habitat while accessing patches of boreal forest within a home range.
[[Page 8628]]
Lynx are a species that uses habitat at a landscape scale, relying
on a landscape of interconnected habitats to travel long distances. For
example, lynx home ranges often encompass well over 100 square
kilometers (39 square miles). Within this home range, lynx may have to
traverse between multiple patches of habitat that provide suitable prey
density and denning areas. An individual may have to cross ``matrix''
habitats that do not provide foraging or denning opportunities, which
is why, in the critical habitat designation, we consider matrix habitat
to be essential to lynx. Matrix habitat holds a potential lynx home
range together. Lynx occupancy of an area cannot be achieved without
the potential for the establishment of a home range.
In Plum Creek's habitat analysis, they assert that the Olney Block
and other areas do not contain a high enough percentage of ``lynx
habitat'' to be considered essential (they do not define lynx habitat
in a way that would allow us to determine if they are using our
definition of occupied habitat). Plum Creek did not assess how the
habitat within the Olney Block interacts with habitat outside of the
parcel on adjacent State land to provide for the potential for lynx
occupancy. We characterize habitat within the Olney Block, that does
not provide high prey densities or denning habitat, as matrix, and
consider it essential to the conservation of lynx that live there,
because it provides connectivity of foraging and denning habitat across
a large area. Therefore, we are including Plum Creek lands in the final
designation.
Economic Issues and Responses
General Comments on Methodology and Scope
(1) Comment: One commenter expressed concern regarding the validity
of the DEA because its conclusions are inconsistent with the August
2006 DEA of Critical Habitat Designation for the Canada Lynx. A comment
highlighted that, while the 2006 DEA estimates impacts of $175 million
to $889 million, the 2008 DEA quantifies impacts of only $2.82 million
for just the administrative costs of section 7 consultation. Because
impacts are significantly greater in the 2006 analysis, the commenters
assert that the 2008 analysis understates economic impacts.
Our response: The 2006 DEA quantified present value impacts of
$99.5 million to $259 million in areas proposed for critical habitat
designation, applying a 7 percent discount rate; the $175 million to
$889 million estimate refers to undiscounted impacts and is therefore
not directly comparable to the present value impacts in the 2008 DEA.
There are several reasons why the values in the 2006 and 2008 analyses
differ. First, the impact estimates being compared across the reports
in this comment are associated with differing scopes of lynx
conservation efforts. The 2006 DEA aggregated and presented the
estimated impacts of all future impacts of lynx conservation, including
both listing and critical habitat related conservation, as
``coextensive'' impacts. Coextensive impacts of $99.5 million to $259
million in the 2006 analysis also included impacts associated with
overlapping protective measures of other Federal, State, and local laws
that aid habitat conservation. The 2008 DEA separately measures: (a)
The baseline (without critical habitat) impacts of lynx conservation;
and (b) the incremental impacts specifically associated with the
critical habitat designation. The present value incremental impacts
expected to result solely from the critical habitat designation are
estimated to be approximately $1.49 million and are associated with
administrative effort for section 7 consultations. All other lynx
conservation impacts are estimated to occur regardless of critical
habitat designation. The commenter's description of estimated
administrative consultation costs in the 2008 DEA of $2.82 million is
incorrect; that estimate does not appear in the 2008 DEA. Other
differences between the 2006 and 2008 DEA are described in Chapter 1,
on pages 1-1 through 1-3, of the 2008 analysis.
(2) Comment: One commenter expressed concern about the potential
for critical habitat to increase delays on the processing and
environmental review of Federal permits: for example, projects that
require a 404 permit under the Clean Water Act.
Our response: Section 2.3.2 of the DEA describes the potential for
critical habitat designation to result in time delays for permit
applications. In the case that critical habitat triggers a delay, it
would be considered an incremental impact of the critical habitat
designation. The DEA does not, however, forecast that this will be an
outcome of the critical habitat designation. To the extent that the
presence of critical habitat does result in time delays for projects,
the DEA understates the incremental impacts of the critical habitat
designation.
(3) Comment: Multiple comments provided on the DEA stated that it
acknowledges the potential for the designation to have indirect
effects, such as the enforcement of State and local laws, but fails to
quantify the associated costs. One commenter stated that, because the
DEA does not quantify such indirect costs, the conservation benefits of
these indirect regulatory methods should not be used in the analysis of
the overall benefit of critical habitat designation. One commenter
asserted that a critical habitat designation can increase attention and
concern regarding potential environmental impacts of a project and may
lead other permitting agencies to examine a proposal more carefully and
take restrictive action that they otherwise would not. Another
commenter stated that the DEA acknowledges the potential for a
``stigma'' effect but does not quantify associated impacts, which would
have a greater impact on private landowners than the direct effects.
Our response: Section 2.3.2 notes that, in some cases, a critical
habitat designation may trigger lynx conservation under other State or
local laws. The section goes on, however, to describe that no State or
local laws were identified in the study area for which critical habitat
would trigger additional compliance. As described in Sections 5.1 and
5.5, planning departments in counties containing critical habitat were
surveyed to assess whether the designation would affect permitting of
development activities. Section 2.3.2 also recognizes that, in some
cases, public perception of critical habitat designation may result in
limitations of private property uses above and beyond those associated
with anticipated project modifications and uncertainty related to
regulatory actions. Public attitudes regarding the limits or
restrictions of critical habitat can cause real economic effects to
property owners, regardless of whether such limits are actually
imposed. To the extent that potential stigma effects on real estate
markets are probable and identifiable, these impacts are considered
indirect, incremental impacts of the designation. It is unknown,
however, whether lynx critical habitat will result in long-term stigma
effects to property owners; as the public becomes aware of the true
regulatory effect imposed by critical habitat, any impact of the
designation on property values would be expected to decrease.
(4) Comment: One commenter stated that assumptions about future
behavior based on past performance in the DEA are not accurate. The
commenter suggests that a small sampling of private property owners to
explore their aspirations for future land use would provide a reality
check to the
[[Page 8629]]
assumptions made in the economic analysis.
Our response: The DEA does not rely solely on historic trends to
forecast future behavior of landowners. Private landowners were
contacted to discuss their ongoing and forecast land management; a list
of private landowners that provided information to inform the analysis
is included in the References section of the DEA.
(5) Comment: One commenter stated that the DEA describes 36 percent
of the proposed critical habitat in Koochiching County, Minnesota, as
being of unknown ownership. The commenter notes that, according to the
Koochiching County Assessor, there is no land within the county of
unknown ownership. Another commenter stated that the DEA identifies
over 1 million acres of third-party-certified county-tax-forfeit forest
land as being of unknown ownership in northeast Minnesota. The
commenter asserts that the designation of critical habitat without
first understanding the economic impacts of such a designation should
not be allowed.
Our response: As described in the landowner type categories of
Exhibit 1-2 of the DEA, no land is categorized as being of unknown
ownership. Exhibit 5-2 misleadingly included a category ``area under
unknown ownership.'' This label is corrected in the final rule to
clarify that these lands are considered as being under private
ownership, although the specific landowners are not identified.
Regarding the tax forfeit land in northeast Minnesota, Exhibit 1-2
identifies 753,327 acres of land identified as ``Local Public
Ownership.'' These are tax-forfeit public lands owned by the State and
managed at the county level. A significant portion of these lands are
managed for timber and are analyzed as such in the DEA.
(6) Comment: One commenter stated that the DEA ignores that private
land rights are eroding through partial regulatory takings and assumes
that there is no risk that regulatory infrastructure will be used to
further diminish private land values.
Our response: The DEA considers the extent to which lynx
conservation may affect private land values. Chapter 5 of the DEA
describes impacts to private land values associated with avoiding or
minimizing impacts to the lynx and its habitat of proposed development
projects. Specifically, as described in Section 5.5, the analysis
assumes that where development is limited for the purposes of lynx
conservation, a portion of the value of the parcel associated with its
potential for future development is lost. As noted in the DEA, however,
only one forecast project was identified (the Moosehead Lake Land Use
Concept Plan in Maine) for which information on both the scope and
scale of the development and on potential lynx conservation
recommendations were available to forecast impacts on land values.
(7) Comment: According to one commenter, the DEA assumes that the
only costs imposed on private landowners by critical habitat
designation result from administrative effort in conducting section 7
consultation. This assumption ignores future costs for lynx management
activities resulting from section 7 consultation. Further, the DEA
quantifies costs of lynx management activities already under way and
assumes that these plans will be models for conservation efforts in the
remaining proposed habitat. The analysis does not, however, quantify
costs of implementing these management plans on the 40 percent of
habitat that is not covered by existing plans.
Our response: As described on page ES-2, the DEA quantifies only
administrative costs associated with section 7 consultation as
incremental impacts of the critical habitat designation. While future
consultations are forecast to result in project modifications across
the land use activities considered in the report, these project
modifications are expected to occur regardless of the critical habitat
designation. The Service has not described additional project
modifications that may be solely attributable to the designation of
critical habitat. With regard to the 40 percent of lands not covered by
existing lynx management plans, the DEA does not consider it reasonably
foreseeable that all landowners across the areas proposed for critical
habitat will adopt lynx management plans following a designation of
critical habitat. As described in Chapter 4, the analysis considers
where lynx management plans may be applied in the future. Specifically,
Section 4.3.3 highlights the potential conservation efforts of future
lynx management guidelines for private lands in Maine. These potential
guidelines differ significantly from the conservation efforts described
in existing lynx management plans (e.g., the LCAS and NRLMD),
evidencing that these private lands would not necessarily apply
existing lynx management plans.
(8) Comment: A commenter stated that the DEA described ancillary
benefits of lynx critical habitat that are considered to the extent
they result in observable impacts on markets. However, the analysis
does not quantify these impacts. For example, while reduced economic
welfare to snowmobilers associated with increased crowding on trails is
quantified as a cost, the analysis doesn't quantify welfare gains to
participants in non-motorized recreation associated with reduced noise
and air pollution.
Our response: Section 6.2 considers welfare impacts associated with
restrictions on snow mobile trail expansions. Scenario 2 of this
analysis assumes that limiting future trail expansions increases
crowding on existing trails resulting in decreased utility per
snowmobile trip. As such, the analysis does not assume there is a net
decrease in snowmobiling but a change in the distribution of the
occurrence of snowmobiling. As a result, while some participants
engaged in non-motorized recreation in some areas may experience
welfare gains (i.e., areas where trails are precluded), others may
experience welfare losses (areas in which the existing trails are more
crowded). Further, data regarding the distribution of non-motorized
recreators in these areas were not available.
(9) Comment: One comment from the Confederated Salish and Kootenai
Tribes of the Flathead Nation stated that the DEA lacked specific
information for areas proposed for exclusion from the critical habitat
designation.
Our response: The DEA separates any costs anticipated to occur on
areas proposed for exclusion from critical habitat designation.
Sections 4.4, 4.5, and 8.5 quantify the pre- and post-designation
administrative costs of section 7 consultations on these lands proposed
for exclusion, and Section 4.4 quantifies the post-designation baseline
impacts to the Passamaquoddy Tribe related to their involvement in the
Maine Healthy Forest Reserve Program (Unit 1).
Comments on Timber Issues
(10) Comment: One commenter stated that the DEA predicts 142 lost
jobs due to restrictions on pre-commercial thinning from the
designation of critical habitat for the lynx. The comment asserts that
this estimate fails to take into account the ancillary employment that
will be lost in related markets, such as housing, sawmills, and local
retail.
Our response: As described in Section 4.4.1, the analysis employs a
regional economic modeling tool, IMPLAN, to estimate the number of jobs
lost in the regional economy due to reduced pre-commercial thinning
levels. IMPLAN translates the lost revenues associated with reduced
pre-commercial thinning levels into changes in demand for goods and
services in related economic sectors
[[Page 8630]]
in the regional economy. Thus, the estimated 142 lost jobs in proposed
critical habitat unit 4 (presented in Exhibit 4-10) represents the
effect of reduced pre-commercial thinning on the regional economy and
not just pre-commercial thinning jobs. Additionally, reductions in pre-
commercial thinning levels are baseline lynx conservation efforts; no
further reductions in pre-commercial thinning levels are estimated to
occur due to the designation of critical habitat for the lynx.
(11) Comment: Two commenters questioned why the Washington
Department of Natural Resources (WDNR) foregone revenue impacts are
high relative to those of other timber managers. Out of the $13.5
million in foregone timber revenue estimated in the DEA, $11.3 million
is associated with WDNR, although it covers a relatively small portion
of the critical habitat area. Further, logging is precluded on a
considerable portion of the WDNR lands, because the timber rights were
purchased for conservation. The commenter questions whether non-lynx-
related logging restrictions on the WDNR lands, such as stream buffers,
HCPs, and a log import ban, were included in the foregone revenue
estimates.
Our response: Economic impacts associated with public land were
based on communication with the landowners regarding the specific
conservation efforts they are applying and the resulting economic
implications. Post-designation baseline impacts specifically associated
with WDNR lands are described in Section 4.5.2 of the analysis.
According to the WDNR, lynx conservation efforts on their land in
proposed critical habitat resulted in removing land from active timber
management. Specifically, 30 percent of the approximately 105,000 acres
of WDNR land in proposed critical habitat is removed from active timber
management, resulting in economic impacts of $1.06 million annually.
While other public landowners implementing lynx management plans have
employed lynx conservation efforts, such as restricting pre-commercial
thinning, they have not removed land completely from timber production
for the purposes of lynx conservation. As a result, the economic
impacts of lynx conservation on WDNR lands are greater than on other
lands implementing lynx management plans.
(12) Comment: F.H. Stoltze Land and Lumber commented that it
provided information on the potential indirect and direct impacts of
critical habitat designation on their lands in previous comment periods
but none of that information was used in the DEA.
Our response: The potential direct and indirect impacts of critical
habitat designation provided by F.H. Stoltze Land and Lumber Company
(Stoltze) during the public comment period for the proposed rule are
summarized in subsection 4.3.6 of the DEA. The section further
describes that Stoltze's assumptions regarding how the Service may
regulate their lands for the purposes of lynx conservation are not
consistent with the assumptions made in the DEA. First, Stoltze
quantifies the impacts of the enforcement of lynx conservation on their
lands similar to that described in the Lynx Conservation Assessment and
Strategy (LCAS). There is no precedent for the Service to request these
types of lynx conservation efforts on private lands, nor has the
Service indicated it intends to do so in the future. Second, ongoing
negotiations regarding lynx management guidelines between the Service
and private timber landowners indicates that lynx conservation
guidelines for private landowners may differ significantly from the
LCAS (see Section 4.3.3 of the analysis which describes the Service's
recommendations with respect to lynx management guidelines on private
timberland in Maine). Further, Stoltze assumes the Service may regulate
their land management via section 7 consultation regarding 404 permits
or fire hazard mitigation projects in critical habitat. To date, no
consultations have taken place regarding these activities. All section
7 consultations on private timberlands in Unit 4 have been for special
use permits and none has required any lynx conservation efforts or
denied access to private lands. The Service has not indicated that this
is expected to change following a critical habitat designation of these
lands.
(13) Comment: One commenter asserted that the DEA does not consider
that private forestland owners will be forced to seek alternative uses,
Federal lands will lose valuable management tools, and Montana will
lose its forest products infrastructure to lynx habitat.
Our response: The assertion that private timberland owners may have
to seek alternate land uses due to lynx conservation is predicated on
the assumption that these landowners would be required to implement
conservation efforts for the lynx similar to those specified in the
LCAS. For the reasons described in Section 4.3.6, the DEA does not
assume this is a reasonably foreseeable assumption. The DEA does,
however, consider the economic impacts of restricting the pre-
commercial thinning management tool on Federal lands, where section 7
consultation requirements apply, in subsection 4.4.1, and the effect on
the regional forest products industries.
(14) Comment: A comment from Plum Creek provided information on the
costs of its ongoing and forecasted lynx conservation efforts. In the
baseline, Plum Creek stated that absent critical habitat designation
they expect to continue to conduct experimental pre-commercial thinning
on approximately 200 ac (81 ha) per year at a present value cost of
$230,000 (assuming an internal rate of return of 8 percent and a 15
percent discount rate). The company also intends to continue to
contribute to research in Maine and Montana for lynx and snowshoe hare
whether or not critical habitat is designated, at a cost of $150,000
($10,000 per year discounted at 3 percent). Plum Creek further expects
to implement mitigation measures for road construction at a cost of
between $110,000 and $250,000 per year absent critical habitat. In
addition, slower speed limits are expected to result in social welfare
impacts to motorists. The commenter noted that not enough information
is available, however, to quantify these costs.
Our response: While Section 4.3.6 of the DEA summarized Plum
Creek's 2006 economic impacts estimates, impact estimates provided in
their comment on the October 2008 DEA are different. As a result, these
baseline impacts as estimated by Plum Creek are new information on
their baseline lynx conservation efforts and are provided in the final
economic analysis. The impacts described by Plum Creek are not entirely
additive with the baseline impacts as quantified in the DEA. The DEA
does include impacts associated with private landowner funding of lynx-
related research in the baseline. The analysis does not, however, break
out the fraction of those costs borne specifically by Plum Creek.
Because of this, and because Plum Creek's estimated impacts are not
broken down by their land ownership in Maine and Montana, the final
economic analysis provides this information to decision makers but does
not update its estimate of baseline impact. This comment does not,
however, change the estimated incremental economic impacts associated
with the critical habitat designation.
(15) Comment: Plum Creek further commented that the Montana and
Maine Lynx Agreements would only be implemented on private lands in the
absence of critical habitat designation. The implementation of these
plans would cost approximately $230,000 for
[[Page 8631]]
distributing information, hosting annual workshops, and supporting lynx
research and monitoring. The associated benefits to the lynx of
implementing these plans would be lost in the case that critical
habitat is designated on these lands and should therefore be considered
incremental costs of the critical habitat designation.
Our response: As private landowners have funded lynx conservation
research in the past, the DEA includes impacts of this continued
funding as baseline impacts of lynx conservation. In the case that the
critical habitat designation results in private landowners ceasing to
fund lynx-related research, baseline impacts are overestimated in the
DEA and any benefits associated with these investments in lynx-related
research would be foregone. Information is not available, however, to
describe benefits or improvements in lynx conservation resulting
specifically from the investments of these private landowners in lynx-
related research.
Comments on Development Analysis
(16) Comment: A comment on the DEA stated that the value of private
property should not be based on that of similar properties as
landowners may have differing objectives for their land use. The
comment further states that the DEA understates or ignores the cost of
environmental measures on private land ownership.
Our response: As described in Section 5.3.2, the analysis assumes
that privately-owned property values within critical habitat include
silvicultural rents, the growth premium, and the option value for
future development. Where future development is precluded from a
parcel, the reduction in land value equals the sum of growth premium
and option value (i.e., the property value is reduced to its
silvicultural rents). The associated land values for these properties
described in the analysis were determined by assessors and consider the
potential future uses of the property; they are not based on comparison
to land use decisions on other properties.
(17) Comment: One commenter stated that the DEA shows a 49 percent
increase in the building permits from 2000 to 2007 in Koochiching
County, Minnesota, a county with declining population. The commenter
asserts that this is an inaccurate portrayal of building activity. In
fact, before this time, the county was operating an under-funded
inspection and permitting system. The county hired an additional
appraiser who instructed owners of existing, un-permitted structures to
obtain building permits in this time period. Building permits issued in
this period are therefore not indicative of actual construction
activity.
Our response: Correspondence with the Koochiching County Assessor's
Office has confirmed that two additional appraisers were hired between
2000 and 2007 and that these hires resulted in an unknown number of
additional un-permitted structures obtaining permits in 2007. The 2000
and 2007 building permit figures in Exhibit 5-2 of the DEA may
therefore not be representative of development activity during those
years in Koochiching County. In fact, development activity is likely
less than that described in the analysis. Section 5.5.2 of the final
economic analysis therefore indicates that development pressure in
Koochiching County is anticipated to be minimal.
(18) Comment: According to one comment, the baseline impacts of
lynx conservation associated with the proposed development at Moosehead
Lake, Maine, are overestimated as some level of development restriction
would occur even in the absence of lynx protections, as the DEA notes
on page ES-3.
Our response: Section 2.3.1 of the DEA describes the baseline as
``the existing state of regulation, prior to the designation of
critical habitat, which provides protection to the species under the
Act, as well as under other Federal, State and local laws and
guidelines.'' Regarding the proposed Moosehead project, the analysis
only quantified impacts of the Service's conservation recommendations
related to the lynx, although a portion of these may be implemented
even absent the lynx. Impacts of these conservation efforts are
appropriately assigned to the baseline in the analysis. Conservation
associated with the Moosehead project that did not overlap potential
lynx conservation recommendations is not quantified in the DEA.
(19) Comment: One commenter stated that the DEA mischaracterizes
the easements under the 1964 Forest Roads and Trails Act. The commenter
suggested removing this language, as this information is mistaken and
not relied upon in the DEA. Specifically, the commenter asserted that
the analysis describes that the U.S. Department of Agriculture has
proposed to change language in the 1964 Forest Roads and Trails Act
broadening the scope of the Act to include road uses for residential
and commercial development. In fact, they are considering a draft
amendment to certain easements owned by Plum Creek that would simply
clarify, not change, the scope of those easements as they already cover
road use for residential and commercial development. Because there is
no expansion of access rights, just a clarification, the matter should
have no economic impacts that affect the DEA.
Our response: Given this information on the 1964 Forest Roads and
Trails Act, and the fact that this does not change the assumptions made
or the estimated economic impact, the language involving the Forest
Roads and Trails Act is removed in the final economic analysis.
(20) Comment: One private landowner, Plum Creek, commented that the
critical habitat is likely to affect development in Maine and Montana.
In the case that Maine's Land Use Regulatory Commission (LURC) treats
the critical habitat area as if it were a Fish and Wildlife Protection
Subdistrict, proposed developments within critical habitat would
require an additional permit. Furthermore, meeting LURC's burden of
proof that proposed developments will not harm the natural environment
may prohibit these developments. Additionally, if Clean Water Act
section 404 permits are required for development in Maine critical
habitat areas, development projects may be modified or precluded as a
result of section 7 consultation. Plum Creek commented that if critical
habitat is designated, they will likely abandon their Land Use Concept
Plan at Moosehead Lake (Moosehead Lake Plan). Lands in the Concept Plan
are valued at $189.6 million to Plum Creek and the conservation
easements were valued at $469,000 in benefits for the local residents
and $9.2 million in benefits for Maine residents. In total, public
benefits of the balance easement were quantified at between $10.8 and
$19.2 million. These benefits would be foregone in the case that
critical habitat is designated.
Our response: As described in Section 5.5.1, the DEA quantifies
impacts related to two scenarios. At the low end, lynx conservation
related to the Moosehead Lake Plan in Maine is assumed to follow LURC's
written recommendations; at the high end, the analysis assumes lynx
conservation will follow more stringent recommendations provided by the
Service. The DEA did not consider a scenario in which Plum Creek
abandons the Moosehead Lake Plan entirely. The final economic analysis
therefore provides the information regarding potential economic impacts
of this scenario. While there are costs (foregone benefits) to Plum
Creek and to the public of abandoning the plan, there may also be an
economic benefits Plan that offsets the cost estimates presented by
Plum
[[Page 8632]]
Creek. The alternative use scenario of these lands absent the Moosehead
Lake Plan is largely uncertain. As a result, it is difficult to predict
what sorts of economic costs and benefits would be associated with the
alternative uses of the land. These issues are discussed in greater
depth in the final economic analysis.
(21) Comment: Plum Creek commented that designation of critical
habitat in Montana may prompt local land use agencies to impose minimum
lot sizes on subdivision developments. According to Plum Creek's
analysis, requiring that future Plum Creek developments in proposed
critical habitat have lot sizes greater than 20, 160, and 640 acres
would result in losses of $0.44 million, $74.2 million, and $243.1
million, respectively. Plum Creek bases their lot size assumptions on
existing growth policies for counties in Montana. Specifically, at the
high end, Missoula County's Seeley Lake Regional Plan identifies lynx
as a species of concern and recommends a land use density of one
dwelling per 640 acres.
Our response: With regard to development in Montana, Section 5.5.3
of the DEA describes that, although no modifications to development
projects have occurred in the past to benefit the lynx, it is possible
that future permitting requirements may become more stringent as a
result of critical habitat designation. Communication with Montana
county planners, however, indicated that few are likely to modify their
minimum lot size requirements in response to critical habitat
designation. Further, it is unclear whether any minimum lot size
requirements would be baseline or related to critical habitat. The
Seely Lake Regional Plan example is an existing (baseline) protection
and already imposes its minimum lot size. This would therefore not be
considered an incremental impact of critical habitat designation in the
DEA. As such, the final economic analysis presents the results of Plum
Creek's study of impacts to development on their Montana lands, but
does not include these estimates in the total impacts of the critical
habitat designation as they are considered too speculative.
Other Comments on the Draft Economic Analysis
(22) Comment: A comment on the DEA asserted that impacts to
recreation were underestimated because the analysis did not take into
consideration that congested trails, resulting from the closure of 29
miles of trails, may decrease winter tourism and recreation. This will
increase pressure on local police and hospitals and reduce the amount
of jobs in the tourism industry.
Our response: Section 6.2 describes impacts to snowmobiling
activities due to potential restrictions on trail use and new trail
construction. The analysis does not state that 29 miles of trail in
Loomis State Forest within Unit 4 will be closed; only that 29 miles of
the Washington State's 3,000 to 3,500 miles of snowmobile trails fall
within the Loomis State Forest. With respect to costs from increased
snowmobile congestion, under a high-bound estimate, the DEA assumes the
cost of lost social welfare of $109,000 for Unit 4 due to increased
trail congestion. These impacts are considered baseline as part of
Okanogan-Wenatchee National Forest's implementation of the LCAS. In
addition, though implementing the LCAS will preclude the creation of
new trails, most snowmobile riding in the Loomis area occurs on
ungroomed trails.
(23) Comment: According to one comment, the incremental impact to
mining activity in Unit 2 of $10,900 is not credible because of the
size and economic contribution of this industry in this region.
Our response: The taconite mining industry, and more recently the
non-ferrous mining industry, has been significant contributors to the
local and regional economy in northern Minnesota. Lynx-related
conservation efforts associated with mining activities are assumed to
occur regardless of critical habitat designation and are therefore
appropriately assigned to the baseline. That is, incremental impacts
are low because the critical habitat is not expected to affect mining
activity beyond the existing level of lynx conservation.
(24) Comment: According to one comment, the DEA underestimates
impacts to grazing activities by failing to take into consideration
that farmers with allotments on public lands may have to either
decrease the number of cows they graze, or overgraze land adjacent to
the critical habitat designation. These changes in grazing activity
would in turn cause job losses in the regional retail and service
industries.
Our response: As stated in paragraph 320 of the DEA, we found ``no
evidence that grazing (is) a factor threatening lynx.'' Section 7
consultations for grazing activities under the LCAS have resulted in
few conservation recommendations and no project modifications.
Paragraph 360 further states that, ``(o)pportunity for grazing has not
been affected by the implementation of the lynx management plans and
conservation recommendations made during section 7 consultation.''
Therefore, the DEA assumes that, beyond the costs of consultation,
grazing activities will not be affected by critical habitat.
(25) Comment: One comment stated that hunting, as an economic
activity, seems to have been overlooked in the DEA. Road construction
in wetlands requires consultation and road access is fundamental to the
economy of Northern Minnesota's recreational hunting industry. The
commenter further asserted that the value of land as deer hunting
property seems to have been similarly overlooked.
Our response: Impacts to hunting and trapping activities are
included in section 6.4 of the analysis and are primarily costs
associated with establishing education programs and enforcing trapping
regulations to avoid incidental take of lynx. The DEA assumes that the
opportunity to hunt will not be diminished due to critical habitat.
With respect to road construction in wetland areas and road access in
northern Minnesota, a section 7 consultation may require modifications
to a road project (i.e., culverts and other habitat crossing measures),
however, critical habitat designation will not preclude road access.
(26) Comment: A comment provided on the DEA stated that the
analysis does not mention boating as a potentially affected activity
although Unit 2 contains most of Minnesota's 17,000 lakes of over one
acre. Construction of boat docks, for example, is likely to trigger a
section 7 consultation.
Our response: The Service does not list boating, or construction of
boat docks, as a threat to the lynx or its habitat in any of its lynx
management documents, nor has this activity been the subject of
consultation in the past. There is therefore no indication that this
activity will be affected by lynx conservation in the future.
(27) Comment: The Small Business Administration (SBA) commented
that the Initial Regulatory Flexibility Analysis (IRFA) is inadequate
to provide a factual basis for certifying that the proposed critical
habitat designation will not have a significant impact on a substantial
number of small entities. First, the IRFA does not provide sufficient
information to adequately forecast costs associated with section 7
consultations involving small entities. In the case that critical
habitat is designated, past section 7 consultations initiated by small
entities to avoid jeopardy must then be re-opened to account for newly
designated critical
[[Page 8633]]
habitat. Second, the IRFA only considers the administrative costs of
re-opening past consultations and fails to consider costs small
entities could face if required to modify projects to avoid adverse
modification of critical habitat. In addition, the IRFA incorrectly
assumes that no new section 7 consultations will occur as a result of
the proposed critical habitat because the critical habitat designation
only covers areas currently occupied by the species. Finally, the SBA
stated that the IRFA does not provide any estimates of costs of
consultations with private landowners under section 10 of the ESA to
obtain an incidental take permit that may result from critical habitat
designation. The SBA further stated that the Service must prepare a
Final Regulatory Flexibility Analysis (FRFA) if it finalizes the
critical habitat designation for the lynx.
Our response: The DEA does include costs of project modifications
associated with forecast section 7 consultations. These project
modifications are all expected to be recommended regardless of the
critical habitat and are therefore assigned to the baseline impacts
quantified in the analysis. Further, the DEA does forecast new
consultations (not just re-openings) following the designation of
critical habitat; however, these new consultations are expected to
occur regardless of whether critical habitat is designated. The lynx
conservation quantified is expected to occur regardless of the critical
habitat designation because, as described on page ES-2 of the draft
economic analysis and in the activity-specific chapters, of the broad
scope and scale of existing lynx conservation that already occurs
across the study area even absent critical habitat. First, the Service
does not expect the conservation direction of existing lynx management
plans, which cover 60 percent of the proposed critical habitat, to be
altered following a critical habitat designation. Second, the Service
has not identified any additional project modifications that it may
recommend via section 7 consultation following a critical habitat
designation above and beyond what has been recommended in the past to
address potential jeopardy issues. As a result, the Service has not
indicated that any regulatory changes would occur due to critical
habitat designation. In terms of potential indirect impacts of critical
habitat designation, the draft economic analysis notes in the Foreword
(Section 1.1) that significant uncertainty is associated with the
analysis due to the dynamic nature of land use planning, ongoing
discussion regarding lynx conservation with private timberland owners,
and whether particular land use activities are risk factors. As
described in Appendix A, the IRFA is based on the incremental impacts
expected to be generated specifically by the designation of critical
habitat. As a result, the baseline impacts of forecast section 7
project modifications are not relevant to the IRFA because they are not
engendered by the critical habitat rulemaking. In addition, critical
habitat does not necessarily increase the need for section 10
incidental take permits. In surveying landowners and land managers, the
economists who wrote the DEA did not identify any basis for assuming
critical habitat designation would result in landowners developing
habitat conservation plans, which are typically associated with the
issuance of section 10(a)(1)(B) incidental take permits. We completed a
FRFA and it is made available with the final economic analysis
concurrently with this final rule.
(28) Comment: Multiple commenters stated that the DEA is unbalanced
because it focuses almost exclusively on the economic costs of critical
habitat designation but does not analyze expected benefits. One
commenter asserted that the protection of critical habitat would likely
provide broader ecological benefits for myriad other species and
ecosystem functions. One commenter stated the analysis should consider
the property value benefits as a result of the creation of open space
areas. Another commenter stated that the DEA should be considered a
cost analysis only, because it focuses only on one side of the total
impacts.
Our response: Where sufficient information is available, the DEA
attempts to measure the net economic effects of species conservation
efforts. The analysis does not attempt to measure net costs of broader
social benefits that may result incidentally from species conservation.
The primary purpose of the rulemaking is the potential to contribute to
the conservation of the lynx. The direct benefits of the rule are
primarily biological; weighing these benefits to lynx conservation
against the expected cost impacts is part of the requirement of section
4(b) of the Act. Therefore, we use cost estimates from the DEA as one
factor against which biological benefits are compared during the
section 4(b)(2) weighing process. We are also interested in weighing
indirect benefits of critical habitat designation, if they can be
verified (we know they will occur), measured economically, and built
into a net DEA. However, many potential indirect benefits resulting
from critical habitat designation cannot be verified or measured
economically. In future, as economic reports of conservation benefits
to people and communities are completed, we may be better able to
analyze this type of data.
(29) Comment: One commenter requested that the Service consider the
on-the-ground benefits of the Montana Lynx Conservation Agreement in
comparison with the benefits of critical habitat designation. The
commenter asserted that the outreach, education, research, and
implementation activities proposed under the agreement provide greater
lynx conservation than any actions achievable by the Service through
critical habitat designation.
Our response: We analyzed the benefits of inclusion of lands
included in the Montana Partnership Conservation Agreement against
benefits of exclusion (see Exclusions Under Section 4(b)(2) of the Act
section; Unit 3). We found that these lands should be included in the
critical habitat designation, mainly because of uncertainty of
implementation and effectiveness of commitments included in the
agreement (which is still a draft), and because the agreement provided
no commitment to implement on-the-ground habitat management of habitat
for lynx.
(30) Comment: One commenter stated that the DEA did not consider
the Southern Rockies habitat area and therefore the Service has not
fulfilled the requirement to show that the benefits of excluding the
Southern Rocky Mountains outweigh the benefits of designating habitat
in the region.
Our response: The Southern Rockies did not meet our criteria for
defining critical habitat. The areas we determined to be essential for
the conservation of lynx (see Criteria Used to Identify Critical
Habitat section of this rule) contain the physical and biological
features essential to lynx and have relatively recent (post-1995)
records and evidence of breeding lynx populations. The Southern Rockies
were not included in the proposed critical habitat, and therefore, no
consideration was given to excluding those lands from critical habitat.
(31) Comment: One commenter stated that the Service has not issued
any regulations or other binding documents regarding how to approach
the ESA 4(b)(2) balancing in assessing whether stimulating private
conservation agreements has greater conservation benefits than
designating certain private lands as critical habitat.
Our response: In designating critical habitat, we are bound by the
Act, and
[[Page 8634]]
regulations at 50 CFR 424.12. We agree that we have not issued new
regulations regarding how to approach section 4(b)(2) critical habitat
exclusion analysis. However, we are currently following our February
12, 2008, Draft Critical Habitat Exclusions Guidance. This guidance was
developed in response to critical habitat case law, which documents the
Courts' interpretations of the requirements of the Act. This rule is
also consistent with the October 3, 2008, opinion from the Solicitor
titled, ``The Secretary's Authority to Exclude Areas from a Critical
Habitat Designation under Section 4(b)(2) of the Endangered Species
Act.''
(32) Comment: According to one comment, the Service cannot lawfully
maintain that the designation of critical habitat would not result in
any incremental economic impacts because recent court decisions,
Gifford Pinchot Task Force v. FWS (9th Cir. 2004) and Arizona Cattle
Growers Association v. Kempthorne (D. Az. 2008), and an October 2008
Solicitor's Opinion, indicate that critical habitat is a more stringent
ESA Section 7 compliance standard than the jeopardy standard.
Our response: The DEA weighs the economic effects of critical
habitat designation separately from effects of listing of the species.
This separation of effects is termed an ``incremental'' analysis. The
DEA includes analysis of known effects resulting from critical habitat
designation, including those related to potential adverse modification
of critical habitat.
Summary of Changes From Proposed Rule
We did not propose changes to 50 CFR 17.11(h) in the proposed rule
because we were not proposing any substantive changes to the entry for
Canada lynx on the List of Threatened and Endangered Wildlife. However,
in this final rule, we are revising the entry for Canada lynx at 50 CFR
17.11(h) to correct some typographical errors; the current entry
includes Colorado and Idaho twice in the ``Historic Range'' column.
In preparing the revised final critical habitat designation for the
lynx, we reviewed and considered comments from the public and peer
reviewers on the proposed revised designation of critical habitat
published on February 28, 2008 (73 FR 10860). We published a notice
announcing the availability of the DEA and draft environmental
assessment on October 21, 2008 (73 FR 62450). As a result of comments
received on the proposal, comments received on the DEA, comments
received on the draft environmental assessment, we made the following
changes in our final designation:
(1) We reevaluated the proposed revised critical habitat units
based on peer review, public comments, and biological information
received during the public comment period. Collectively, we excluded
approximately 4,468 km2 (1,725 mi2) of land from
this revised final critical habitat designation. Table 1 provides
differences in the amount of area proposed for designation and the
areas designated in this final rule. We excluded Tribal lands per
Executive Order 3206 (see Tribal Lands Excluded from Lynx Critical
Habitat section below), and non-Federal lands with existing,
implemented, and effective lynx management plans (see Exclusions Under
Section 4(b)(2) of the Act section below).
(2) We removed portions of units that did not contain the primary
constituent element (PCE), and areas where existing development was
concentrated, from the final designation based on available maps. In
some areas, unit boundaries were expanded to incorporate adjacent lynx
habitat that had been inadvertently left out of the proposed boundary.
These changes from the proposed boundary were noted in the notice of
availability of the DEA and draft environmental assessment published in
the Federal Register (73 FR 62450, October 21, 2008).
(3) We have clarified the primary constituent element to reflect
the importance of mature multistoried forest stands with conifer boughs
that touch the snow surface. These mature stands are especially
important as lynx habitat in the northern Rocky Mountains.
(4) We have modified the textual description of areas that are not
included in critical habitat.
Critical Habitat
Critical habitat is defined in section 3 of the Act as:
(i) The specific areas within the geographical area occupied by a
species, at the time it is listed in accordance with the Act, on which
are found those physical or biological features
(a) Essential to the conservation of the species and
(b) That may require special management considerations or
protection; and
(ii) Specific areas outside the geographical area occupied by a
species at the time it is listed, upon a determination that such areas
are essential for the conservation of the species.
Conservation, as defined under section 3 of the Act, means the use
of all methods and procedures that 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. Such
methods and procedures include, but are not limited to, all activities
associated with scientific resources management such as research,
census, law enforcement, habitat acquisition and maintenance,
propagation, live trapping, and transplantation, and, in the
extraordinary case where population pressures within a given ecosystem
cannot be otherwise relieved, may include regulated taking.
Critical habitat receives protection under section 7 of the Act
through the prohibition against Federal agencies carrying out, funding,
or authorizing the destruction or adverse modification of critical
habitat. Section 7(a)(2) of the Act requires consultation on Federal
actions that may affect critical habitat. The designation of critical
habitat does not affect land ownership or establish a refuge,
wilderness, reserve, preserve, or other conservation area. Such
designation does not allow the government or public to access private
lands. Such designation does not require implementation of restoration,
recovery, or enhancement measures by private landowners. Where a
landowner requests Federal agency funding or authorization for an
action that may affect a listed species or critical habitat, the
consultation requirements of section 7(a)(2) would apply.
For inclusion in a critical habitat designation, the habitat within
the geographical area occupied by the species at the time of listing
must contain the physical and biological features that are essential to
the conservation of the species, and be included only if those features
may require special management consideration or protection. Critical
habitat designations identify, to the extent known using the best
scientific data available, habitat areas that provide essential life
cycle needs of the species (i.e., areas on which are found those
physical and biological features essential to the conservation of the
species, as defined at 50 CFR 424.12(b)). Under the Act, we can
designate critical habitat in areas outside of the geographical area
occupied by the species at the time of listing only when we determine
that those areas are essential for the conservation of the species.
Section 4 of the Act requires that we designate critical habitat on
the basis of
[[Page 8635]]
the best scientific and commercial data available. Further, our Policy
on Information Standards Under the Endangered Species Act, published in
the Federal Register on July 1, 1994 (59 FR 34271), the Information
Quality Act (section 515 of the Treasury and General Government
Appropriations Act for Fiscal Year 2001 (Pub. L. 106-554; H.R. 5658)),
and our associated Information Quality Guidelines provide criteria,
establish procedures, and provide guidance to ensure that our decisions
represent the best scientific data available. They require our
biologists, to the extent consistent with the Act and with the use of
the best scientific data available, to use primary and original sources
of information as the basis for recommendations to designate critical
habitat.
When determining which areas should be designated as critical
habitat, our primary source of information is generally the information
developed during the listing process for the species. Additional
information sources may include the recovery outline or the recovery
plan for the species, articles in peer-reviewed journals, conservation
plans developed by States and counties, scientific status surveys and
studies, biological assessments, or other unpublished materials and
expert opinion or personal knowledge.
Habitat is often dynamic, and species may move from one area to
another over time. Furthermore, we recognize that critical habitat
designated at a particular point in time may not include all of the
habitat areas that we may later determine are necessary for the
recovery of the species. For these reasons, a critical habitat
designation does not signal that habitat outside the designation is
unimportant or may not promote the recovery of the species.
Areas that support populations, but are outside the critical
habitat designation, will continue to be subject to conservation
actions implemented under section 7(a)(1) of the Act. They are also
subject to the regulatory protections afforded by the section 7(a)(2)
jeopardy standard, as determined on the basis of the best available
information at the time of the Federal agency action. Federally funded
or permitted projects affecting listed species outside their designated
critical habitat areas may still result in jeopardy findings in some
cases. Similarly, critical habitat designations made on the basis of
the best available information at the time of designation will not
control the direction and substance of future recovery plans, habitat
conservation plans, or other species conservation planning efforts if
new information available to these planning efforts calls for a
different outcome.
Primary Constituent Elements
In accordance with section 3(5)(A)(i) of the Act and regulations at
50 CFR 424.12, in determining which areas occupied by the species at
the time of listing to designate as critical habitat, we consider the
physical and biological features that are essential to the conservation
of the species and that may require special management considerations
and protection. We consider the physical and biological features to be
the primary constituent elements (PCEs) laid out in the appropriate
quantity and spatial arrangement for the conservation of the species.
These include, but are not limited to:
1. Space for individual and population growth and for normal
behavior;
2. Food, water, air, light, minerals, or other nutritional or
physiological requirements;
3. Cover or shelter;
4. Sites for breeding, reproduction, and rearing (or development)
of offspring; and
5. Habitats that are protected from disturbance or are
representative of the historic geographical and ecological
distributions of a species.
Boreal Forest Landscapes (Space for Individual and Population Growth
and Normal Behavior)
Lynx populations respond to biotic and abiotic factors at different
scales. At the regional scale, snow conditions, boreal forest and
competitors (especially bobcat) influence the species' range (Aubry et
al. 2000, p. 378-380; McKelvey et al., 2000b pp. 242-253; Hoving et
al., 2005 p. 749). At the landscape scale within each region, natural
and human-caused disturbance processes (e.g., fire, wind, insect
infestations and forest management) influence the spatial and temporal
distribution of lynx populations by affecting the distribution of good
habitat for snowshoe hares (Agee 2000, pp. 47-73; Ruediger et al. 2000,
pp. 1-3, 2-2--2-6, 7-3). At the stand-level scale, quality, quantity,
and juxtaposition of habitats influence home range size, productivity,
and survival (Aubry et al. 2000, pp. 380-390; Vashon et al. 2005a, pp.
9-11). At the substand scale, spatial distribution and abundance of
prey and microclimate influence movements, hunting behavior, den, and
resting site locations.
All of the constituent elements of critical habitat for lynx are
found within large landscapes in what is broadly described as the
boreal forest or cold temperate forest (Frelich and Reich 1995, p. 325,
Agee 2000, pp. 43-46). In the contiguous United States, the boreal
forest is more transitional rather than true boreal forest of northern
Canada and Alaska (Agee 2000, pp. 43-46). This difference is because
the boreal forest is at its southern limits in the contiguous United
States, where it transitions to deciduous temperate forest in the
Northeast and Great Lakes and subalpine forest in the west (Agee 2000,
pp. 43-46). We use the term ``boreal forest'' because it generally
encompasses most of the vegetative descriptions of the transitional
forest types that comprise lynx habitat in the contiguous United States
(Agee 2000, pp. 40-41).
At a regional scale, lynx habitat is within the areas that support
deep snow for extended periods and that support boreal forest
vegetation types (see below for more detail). In eastern North America,
lynx distribution was strongly associated with areas of deep snowfall
and 100-km2 (40-mi2)) landscapes that had been
previously treated with herbicides and had a high proportion of
regenerating forest (Hoving 2001, pp. 75, 143). Hoving et al. (2004, p.
291) concluded that the broad geographic distribution of lynx in
eastern North America is most influenced by snowfall, but within areas
of similarly deep snowfall, measures of forest succession become more
important factors in determining lynx distribution. In the Rockies,
lynx habitat relationships appear to be less tied to early successional
forest stages, with high use, especially in the critical winter season,
in mature multistoried forest stands where conifer branches reach the
snow surface and thereby provide hare forage (Squires et al. 2006).
Boreal forests used by lynx are generally cool, moist, and
dominated by conifer tree species, primarily spruce and fir (Agee 2000,
pp. 40-46; Aubry et al. 2000, pp. 378-382; Ruediger et al. 2000, pp. 4-
3, 4-8--4-11, 4-25--4-26, 4-29--4-30). Boreal forest landscapes used by
lynx are a heterogeneous mosaic of vegetative cover types and
successional forest stages created by natural and human-caused
disturbances (McKelvey et al. 2000a, pp. 426-434). In many places
periodic vegetation disturbances stimulate development of dense
understory or early successional habitat for snowshoe hares (Ruediger
et al. 2000, pp. 1-3--1-4, 7-4--7-5). In Maine, lynx were positively
associated with landscapes altered by clearcutting 15 to 25 years
previously (Hoving et al. 2004, p. 291). In other places, such as the
northern Rocky Mountains, mature
[[Page 8636]]
multistoried conifer forests as well as dense regenerating conifer
stands provide foraging habitat for lynx (Squires et al. 2006).
The overall quality of the boreal forest landscape and
juxtaposition of stands in suitable condition within the landscape is
important for both lynx and snowshoe hares in that it can influence
connectivity or movements between suitable stands, availability of food
and cover and spatial structuring of populations or subpopulations
(Hodges 2000b, pp. 184-195; McKelvey et al. 2000a, pp. 431-432; Walker
2005, pp. 79). For example, lynx foraging habitat must be near denning
habitat to allow females to adequately provision dependent kittens,
especially when the kittens are relatively immobile. In north-central
Washington, hare densities were higher in landscapes with an abundance
of dense boreal forest interspersed with small patches of open habitat,
in contrast to landscapes composed primarily of open forest
interspersed with few dense vegetation patches (Walker 2005, p. 79).
Similarly, in northwest Montana, connectivity of dense patches within
the forest matrix benefited snowshoe hares (Ausband and Baty 2005, p.
209). In mountainous areas, lynx appear to prefer flatter slopes (Apps
2000, p. 361; McKelvey et al. 2000d, p. 333; von Kienast 2003, p. 21,
Table 2; Maletzke 2004, pp. 17-18).
Individual lynx require large portions of boreal forest landscapes
to support their home ranges and to facilitate dispersal and
exploratory travel. The size of lynx home ranges is believed to be
strongly influenced by the quality of the habitat, particularly the
abundance of snowshoe hares, in addition to other factors such as
gender, age, season, and density of the lynx population (Aubry et al.
2000, pp. 382-385; Mowat et al. 2000, pp. 276-280). Generally, females
with kittens have the smallest home ranges while males have the largest
home ranges (Moen et al. 2005, p. 11, Burdett et al. 2007, p. 463).
Reported home range sizes vary greatly from 31 km2 (12
mi2) for females and 68 km2 (26 mi2)
for males in Maine (Vashon et al. 2005a, p. 7), 21 km2 (8
mi2) for females to 307 km2 (119 mi2)
for males in Minnesota (Moen et al. 2005, p. 12), and 88 km2
(34 mi2) for females and 216 km2 (83
mi2) for males in northwest Montana (Squires et al. 2004b,
pp. 15-16).
Forest Type Associations
Maine
Lynx were more likely to occur in 100 km2 (40
mi2) landscapes with regenerating forest, and less likely to
occur in landscapes with recent clearcut or partial harvest, (Hoving et
al. 2004, pp. 291-292). Lynx in Maine select softwood-dominated (spruce
and fir) regenerating stands (Vashon et al. 2005a, p. 8). Regenerating
stands used by lynx generally develop 15-30 years after forest
disturbance and are characterized by dense horizontal structure and
high stem density within a meter of the ground. These habitats support
high snowshoe hare densities (Homyack 2003, p. 63; Fuller and Harrison
2005, pp. 716, 719; Vashon et al. 2005a, pp. 10-11). At the stand
scale, lynx in northwestern Maine selected older (11- to 26-year-old),
tall (4.6 to 7.3 m (15 to 24 ft)) regenerating clearcut stands and
older (11- to 21-year-old) partially harvested stands (A. Fuller,
University of Maine, unpubl. data).
Minnesota
In Minnesota, lynx primarily occur in the Northern Superior Uplands
Ecological Section of the Laurentian Mixed Forest Province.
Historically, this area was dominated by red pine (Pinus resinosa) and
white pine (P. strobus) mixed with aspen (Populus spp.), paper birch
(Betula papyrifera), spruce, balsam fir (A. balsamifera) and jack pine
(P. banksiana) (Minnesota Department of Natural Resources [Minnesota
DNR] 2003, p. 2).
Preliminary research suggests lynx in Minnesota generally use
younger stands (less than 50 years) with a conifer component in greater
proportion than their availability (R. Moen, University of Minnesota,
unpubl. data). Lynx prefer predominantly upland forests dominated by
red pine, white pine, jack pine, black spruce (P. mariana), paper
birch, quaking aspen (P. tremuloides), or balsam fir (R. Moen, unpubl.
data).
Washington
In the North Cascades in Washington, the majority of lynx
occurrences were found above 1,250 m (4,101 ft) (McKelvey et al. 2000b,
p. 243, 2000d, p. 321; von Kienast 2003, p. 28, Table 2; Maletzke 2004,
p. 17). In this area, lynx selected Engelman spruce (P. engelmanii)-
subalpine fir (A. lasiocarpa) forest cover types in winter (von Kienast
2003, p. 28, Maletzke 2004, pp. 16-17, Koehler et al. 2008, p. 1518).
Lodgepole pine (P. contorta) is a dominant tree species in the earlier
successional stages of these climax cover types. Seral (intermediate
stage of ecological succession) lodgepole stands contained dense
understories and therefore received high use by snowshoe hares and lynx
(Koehler 1990, pp. 847-848; McKelvey et al. 2000d, pp. 332-335).
Douglas-fir, ponderosa pine forests, openings, recent burns, open
canopy and understory cover, and steep slopes were all avoided habitat
types (Koehler et al. 2008, p. 1518).
Northern Rockies
In the Northern Rocky Mountains, the majority of lynx occurrences
are associated with the Rocky Mountain Conifer Forest or Western
Spruce-Fir Forest vegetative class (Kuchler 1964, p. 4; McKelvey et al.
2000b, p. 246) and occur above 1,250 m (4,101 ft) elevation (Aubry et
al. 2000, pp. 378-380; McKelvey et al. 2000b, pp. 243-245). The
dominant vegetation that constitutes lynx habitat in these areas is
subalpine fir, Engelman spruce and lodgepole pine (Aubry et al. 2000,
p. 379; Ruediger et al. 2000, pp. 4-8--4-10). Mature multi-storied
stands are used preferentially in winter (Squires et al. 2006). As in
the Cascades, lodgepole pine is an earlier successional stage of
subalpine fir and Engelman spruce climax forest cover types.
a. Snowshoe Hares (Food)
Snowshoe hare density is the most important factor explaining the
persistence of lynx populations (Steury and Murray 2004, p. 136). A
minimum snowshoe hare density necessary to maintain a persistent,
reproducing lynx population within the contiguous United States has not
been determined, although Ruggiero et al. (2000, pp. 446-447) suggested
that at least 0.5 hares per hectare (ha) (0.2 hares per acre (ac)) may
be necessary. Steury and Murray (2004, p. 137)) modeled lynx and
snowshoe hare populations and predicted that a minimum of 1.1 to 1.8
hares per ha (0.4 to 0.7 hares per ac) was required for persistence of
a reintroduced lynx population in the southern portion of the lynx
range.
The boreal forest landscape is naturally dynamic and usually
contains a mosaic of forest stand successional stages. In some areas,
particularly in the eastern portion of the DPS, stands that support
high densities of snowshoe hares are of a young successional stage and
are in a constant state of transition to other more mature stages.
Conversely, if the vegetation potential (or climax forest type) of a
particular forest stand is conducive to supporting abundant snowshoe
hares, it likely will also go through successional stages that are
unsuitable as lynx foraging (snowshoe hare habitat) or lynx denning
habitat (Agee 2000, p. 62-72; Buskirk et al. 2000b, pp. 403-408) as
part of a natural forest succession process. For example, a boreal
forest stand where there has been recent disturbance, such as fire or
timber harvest, resulting in little or no understory structure is
unsuitable as
[[Page 8637]]
snowhoe hare habitat for lynx foraging. That temporarily unsuitable
stand would regenerate into suitable snowshoe hare (lynx foraging)
habitat within 10 to 25 years, depending on local conditions (Ruediger
et al. 2000, pp. 1-3--1-4, 2-2--2-5). This continuation of this natural
dynamism exhibited in boreal forest succession is crucial for lynx
survival due to their dependence on intermediate successional stages in
many areas. In places where lynx are dependent on mature forest stages,
forest stand turnover still occurs, but on a longer time scale
requiring the ability to recruit new mature forest stands as others are
lost to fire, insect infestation, or human activities.
Forest management techniques that thin the understory may render
the habitat unsuitable for hares and, thus, for lynx (Ruediger et al.
2000, pp. 2-4--3-2; Hoving et al. 2004, pp. 291-292). Stands may
continue to provide suitable snowshoe hare habitat for many years until
woody stems in the understory become too sparse, as a result of
undisturbed forest succession or management (e.g., clearcutting or
thinning). Thus, if the vegetation potential of the stand is
appropriate, a stand that is not currently in a condition that is
suitable to support abundant snowshoe hares for lynx foraging or coarse
woody debris for den sites would develop into suitable habitat for
snowshoe hares (and thus lynx foraging) with time. Therefore, we
consider those forest areas with the potential, through natural
succession, to produce high quality snowshoe hare habitat to be lynx
habitat, regardless of the stage of forest succession that area is
currently in.
As described previously, snowshoe hares prefer boreal forest stands
that have a dense horizontal understory to provide food, cover and
security from predators. Snowshoe hares feed on conifers, deciduous
trees, and shrubs (Hodges 2000b, pp. 181-183). Snowshoe hare density is
correlated to understory cover between approximately 1 to 3 m (3 to 10
ft) above the ground or snow level (Hodges 2000b, p. 184). Habitats
most heavily used by snowshoe hares are stands with shrubs, stands that
are densely stocked, and stands at ages where branches have more
lateral cover (Hodges 2000b, p. 184). In Maine, the snowshoe hare
densities were highest in stands supporting high conifer stem densities
(Homyack 2003, p. 195, Robinson 2006, p. 69). In north-central
Washington, snowshoe hare density was highest in 20-year-old lodgepole
pine stands where the average density of trees and shrubs was 15,840
stems per ha (6,415 stems per ac) (Koehler 1990, p. 848). In Montana,
lynx use in winter corresponded to stands with a high number of large
mature trees with branches that reached the snow surface (Squires et
al. 2006, p. 15). Generally, earlier successional forest stages support
a greater density of horizontal understory and more abundant snowshoe
hares (Buehler and Keith 1982, p. 24; Wolfe et al. 1982, pp. 668-669;
Koehler 1990, pp. 847-848; Hodges 2000b, pp. 184-191; Griffin 2004, pp.
84-88); however, sometimes mature stands also can have adequate dense
understory to support abundant snowshoe hares (Griffin 2004, p. 88). In
Montana, lynx favor multistory stands, often in older-age classes,
where the tree boughs touch the snow surface but where the stem density
is low (Squires et al. 2006, p. 15).
In Maine, the highest snowshoe hare densities were found in
regenerating softwood (spruce and fir) and mixed-wood stands with high
conifer stem densities (Fuller and Harrison 2005, pp. 716, 719,
Robinson 2006, p. 69). In the north Cascades, the highest snowshoe hare
densities were found in 20-year-old seral lodgepole pine stands with a
dense understory (Koehler 1990, pp. 847-848). In montane and subalpine
forests in northwest Montana, the highest snowshoe hare densities in
summer were generally in younger stands with dense forest structure,
whereas in winter, snowshoe hare densities were as high or higher in
mature stands with dense understory forest structure (Griffin 2004, p.
53).
Habitats supporting abundant snowshoe hares must be present in a
sufficient proportion (though not necessarily the majority) of the
landscape to support a viable lynx population. Broad-scale snowshoe
hare density estimates are not available for the areas being designated
as lynx critical habitat. Available snowshoe hare density estimates are
helpful in determining where snowshoe hares exist, but each estimate is
specific to both a location and a point in time. Due to intrinsic,
rapid fluctuations often seen in snowshoe hare populations, density
estimates can not be considered definitive for any particular area. If
enough data were gathered for a specific area over several years, these
data could be used to calculate an average density (with margins of
error included).
b. Snow Conditions (Other Physiological Requirements)
Snow conditions also determine the distribution of lynx and
snowshoe hares. Deep, fluffy snow conditions likely restrict potential
competitors such as bobcat or coyote from effectively encroaching on or
hunting in winter lynx habitat. Snowfall was the strongest predictor of
lynx occurrence at a regional scale (Hoving et al. 2005, p. 746, Table
5). In addition to snow depth, other snow properties, including surface
hardness or sinking depth, are important factors in the spatial,
ecological, and genetic structuring of the species (Stenseth et al.
2004, p. 75).
In the northeastern United States, lynx are most likely to occur in
areas with a 10-year mean annual snowfall greater than 268 cm (105 in)
(Hoving 2001, p. 75). The Northern Superior Uplands section of
Minnesota receives more of its precipitation as snow than any section
in the State, has the longest period of snow cover, and the shortest
growing season (Minnesota DNR 2003, p. 2). Mean annual snowfall from
1971 to 2000 in this area was generally greater than 149 cm (55 in)
(University of Minnesota 2005 webpage).
Information on average snowfall or snow depths in mountainous areas
such as the Cascades or northwest Montana is limited because there are
few weather stations in these regions that have measured snow fall or
snow depth over time. An important consideration is that the topography
strongly influences local snow conditions. For example, in the
Cascades, at the Mazama station, average annual snowfall from 1948 to
1976 was 292 cm (115 in) (Western Regional Climate Center 2005
webpage). In Montana, at the Seeley Lake Ranger Station, average annual
snowfall from 1948 to 2005 was 315 cm (124 in), while at the Troy
station the average total snowfall from 1961 to 1994 was 229 cm (90 in)
(Western Regional Climate Center 2005 webpage).
c. Denning Habitat (Sites for Reproduction and Rearing of Offspring)
Lynx den sites are found in mature and younger boreal forest stands
that have a large amount of cover and downed, large woody debris. The
structural components of lynx den sites are common features in managed
(logged) and unmanaged (e.g., insect damaged, wind-throw) stands.
Downed trees provide excellent cover for den sites and kittens and
often are associated with dense woody stem growth.
Sub-stand characteristics were evaluated for 26 lynx dens from 1999
to 2004 in northwest Maine. Dens were found in several stand types.
Modeling of den site variables determined that tip-up mounds (exposed
roots from fallen trees) alone best explained den site selection (J.
Organ, Service, unpubl. data). Tip-up mounds may purely be an index of
downed trees, which were
[[Page 8638]]
abundant on the landscape. Horizontal cover at 5 m (16 ft) alone was
the next best performing model (J. Organ, unpubl. data). Dead downed
trees were sampled, but did not explain den site selection as well as
tip-up mounds and cover at 5 m (16 ft). Lynx essentially select dense
cover in a cover-rich area for denning.
In the North Cascades, Washington, lynx denned in mature (older
than 250 years) stands with an overstory of Engelman spruce, subalpine
fir, and lodgepole pine with an abundance of downed woody debris
(Koehler 1990, p. 847). In this study, all den sites were located on
north-northeast aspects (Koehler 1990, p. 847). In northwest Montana,
the immediate areas around dens were in a variety of stand ages but all
contained abundant woody debris including downed logs, blowdowns, and
rootwads, and dense understory cover (Squires et al. 2004b, Table 3).
Information on den site characteristics in Minnesota has not yet been
reported (Moen et al. 2005, p. 8).
Primary Constituent Element for the Canada Lynx
Within the geographical area occupied by the lynx at the time of
listing, we must identify the physical and biological features that are
essential to the conservation of the species and that may require
special management considerations or protections. The physical and
biological features are primary constituent elements (PCEs) laid out in
a specific quantity and spatial arrangement to be essential to the
conservation of the species.
Based on the above needs and our current knowledge of the life
history, biology, and ecology of the species, we have determined that
the primary constituent element for lynx critical habitat is:
1. Boreal forest landscapes supporting a mosaic of differing
successional forest stages and containing:
a. Presence of snowshoe hares and their preferred habitat
conditions, which include dense understories of young trees, shrubs or
overhanging boughs that protrude above the snow, and mature
multistoried stands with conifer boughs touching the snow surface;
b. Winter snow conditions that are generally deep and fluffy for
extended periods of time;
c. Sites for denning that have abundant coarse woody debris, such
as downed trees and root wads; and
d. Matrix habitat (e.g., hardwood forest, dry forest, non-forest,
or other habitat types that do not support snowshoe hares) that occurs
between patches of boreal forest in close juxtaposition (at the scale
of a lynx home range) such that lynx are likely to travel through such
habitat while accessing patches of boreal forest within a home range.
This critical habitat designation is designed for the conservation
of the physical and biological features essential to the conservation
of the lynx and necessary to support lynx life history functions. The
physical and biological features, described in the PCE defined above,
comprise the essential features of boreal forest that (1) provide
adequate prey resources necessary for the persistence of local
populations and metapopulations of lynx through reproduction; (2) act
as a possible source of lynx for more peripheral boreal forested areas;
(3) enable the maintenance of home ranges; (4) incorporate snow
conditions for which lynx are highly specialized that give lynx a
competitive advantage over potential competitors; (5) provide denning
habitat; and (6) provide habitat connectivity for travel within home
ranges, exploratory movements, and dispersal within critical habitat
units. Lynx use habitat at a landscape scale, which means that no
single locality (small scale) contains all of the required habitat
elements that lynx need to ensure survival and reproduction. Therefore,
individual portions of each unit (for example, an individual forest
stand) may not contain all of the PBFs listed above, however, each
unit, as a landscape, does contain each of the PBFs and it is the
landscape as a whole that contains the PCE.
Special Management Considerations or Protections
When designating critical habitat, we assess whether the areas
occupied by the species at the time of listing contain the physical and
biological features that are essential to the conservation of the
species, and whether these features may require special management
considerations or protections.
Lands within the revised critical habitat will require some level
of management to address the current and future threats to the lynx and
to maintain and protect the physical and biological features essential
to the conservation of the species. In all units, special management
will be required to ensure that boreal forest landscapes provide a
mosaic of forest stands of various ages to provide abundant prey
habitat, denning habitat, and connectivity within the landscape. The
designation of critical habitat does not imply that lands outside of
critical habitat do not play an important role in the conservation of
the lynx. Federal activities that may affect areas outside of critical
habitat, such as forest management, development, and road construction,
are still subject to review under section 7 of the Act if they may
affect lynx, because Federal agencies must consider effects to lynx and
effects to critical habitat independently. The take prohibitions of
section 9 of the Act (e.g., harm, harass, capture, kill) also continue
to apply both inside and outside of designated critical habitat.
Special management direction for lynx has been applied to public
lands in much of the lynx DPS. The U.S. Forest Service (USFS), Bureau
of Land Management (BLM), National Park Service (NPS), and the Service
developed a Lynx Conservation Assessment and Strategy (LCAS) (Ruediger
et al. 2000, entire) using the best available science at the time
specifically to provide a consistent and effective approach to conserve
lynx and lynx habitat on Federal lands (Ruediger et al. 2000). The
overall goals of the LCAS are to recommend lynx conservation measures,
to provide a basis for reviewing the adequacy of USFS and BLM land and
resource management plans with regard to lynx conservation, and to
facilitate conferencing and consultation under section 7 of the Act.
The LCAS identifies an inclusive list of 17 potential risk factors for
lynx or lynx habitat that may be addressed under programs, practices,
and activities within the authority and jurisdiction of Federal land
management agencies. The risks identified in the LCAS are based on
effects to individual lynx, lynx populations, or to lynx habitat.
Potential risk factors the LCAS addresses, that may affect lynx
productivity, include: Timber management, wildland fire management,
recreation, forest/backcountry roads and trails, livestock grazing, and
other human developments. Potential risk factors the LCAS addresses,
that may affect lynx mortality, include: Trapping, predator control,
incidental or illegal shooting, and competition and predation as
influenced by human activities and highways. Potential risk factors the
LCAS addresses, that may affect lynx movement, include: Highways,
railroads and utility corridors, land ownership pattern, and ski areas
and large resorts. Other potential large-scale risk factors for lynx
addressed by the LCAS include: Fragmentation and degradation of lynx
refugia, lynx movement and dispersal across shrub-steppe habitats, and
habitat degradation by nonnative and invasive plant species.
[[Page 8639]]
The LCAS used the best available information in 2000 to ensure that
the appropriate mosaic of habitat is provided for lynx conservation on
Federal lands. Although the LCAS was written specifically for Federal
lands, many of the conservation measures could be pertinent to non-
Federal lands. To facilitate project planning and allow for the
assessment of the potential effects of a project on an individual lynx,
the LCAS directs Federal land management agencies to delineate Lynx
Analysis Units (LAUs). The scale of an LAU approximates the size of
area used by an individual lynx (25 to 50 mi2 (65 to 130
km2)). The LCAS recognizes that LAUs will likely encompass
both lynx habitat and other areas (e.g., lakes, low elevation ponderosa
pine (Pinus ponderosa) forest, and alpine tundra). Habitat-related
standards the LCAS provides to address potential risks include:
1. If more than 30 percent of lynx habitat in an LAU is currently
in unsuitable condition, no further reduction of suitable condition
shall occur as a result of vegetation management activities by Federal
agencies;
2. Within an LAU, maintain denning habitat in patches generally
larger than 5 ac (2 ha), comprising at least 10 percent of lynx
habitat;
3. Maintain habitat connectivity within and between LAUs;
4. Management actions (e.g., timber sales, salvage sales) shall not
change more than 15 percent of lynx habitat within an LAU to an
unsuitable condition within a 10-year period;
5. Pre-commercial thinning will only be allowed when stands no
longer provide snowshoe hare habitat; and
6. On Federal lands in lynx habitat, allow no net increase in
groomed or designated over-the-snow routes and snowmobile play areas by
LAU.
With the listing of the lynx in 2000, Federal agencies across the
contiguous United States range of the lynx were required to consult
with the Service on actions that may affect lynx. The LCAS assists
Federal agencies in planning activities and projects in ways that
benefit lynx or avoid adverse impacts to lynx or lynx habitat (Ruediger
et al. 2000). If projects are designed that fail to meet the standards
in the LCAS, the biologists using the LCAS would arrive at an adverse
effect determination for lynx.
A Conservation Agreement between the USFS and the Service (U.S.
Forest Service and U.S. Fish and Wildlife Service 2000) and a similar
Agreement between the BLM and the Service (Bureau of Land Management
and U.S. Fish and Wildlife Service 2000) committed the USFS and BLM to
use the LCAS in determining the effects of actions on lynx until Forest
Plans were amended or revised to adequately conserve lynx. A
programmatic biological opinion pursuant to section 7 of the Act
confirmed the adequacy of the LCAS and its conservation measures to
conserve lynx, and concluded that USFS and BLM land management plans,
as implemented in accordance with the Conservation Agreements, would
not jeopardize the continued existence of lynx (U.S. Fish and Wildlife
Service 2000).
In 2005, the USFS and the Service renewed the conservation
agreement (U.S. Forest Service and U.S. Fish and Wildlife Service 2005)
because the original agreement had expired. In the 2005 agreement, the
parties agreed to take measures to reduce or eliminate adverse effects
or risks to lynx and its occupied habitat pending amendments to Forest
Plans. The LCAS is a basis for implementing this agreement (U.S. Forest
Service and U.S. Fish and Wildlife Service 2005). The 2005 agreement
was renewed on October 20, 2006, and expires December 31, 2010, unless
renewed. The BLM continues to adhere to their original agreement
although it expired in December 2004.
Lynx conservation depends on management that supports boreal forest
landscapes of sufficient size to encompass the temporal and spatial
changes in habitat and snowshoe hare populations to support
interbreeding lynx populations or metapopulations over time. At the
time it was written, the LCAS provided the highest level of management
or protection for lynx. The LCAS conservation measures address risk
factors affecting lynx habitat and lynx productivity and were designed
to be implemented at the scale necessary to conserve lynx. This level
of management is appropriate for Federal lands, because they account
for the majority of high-quality habitat in the United States, and also
because the inadequacy of regulatory mechanisms to conserve lynx on
these lands was the primary reason for listing the lynx as a threatened
species under the Act. New information has become available since the
LCAS was written, and should be taken into account by land managers.
Kolbe et al. (2007) and Bunnell et al. (2006) published information on
the effects of snowmobiling on lynx, and Squires et al. (2006)
documented the importance of multilayered stands as snowshoe hare
habitat. Ongoing research in Minnesota and Maine has resulted in
information that contributes to our understanding of lynx and snowshoe
hares (e.g., Moen et al. 2004; Hoving et al. 2005; Homyack et al. 2007;
Fuller et al. 2007). In some regions of Wyoming, Washington and Maine,
research continues. As new information becomes available, it should be
added to that in the LCAS.
The USFS considered some of the new information discussed above
when it proposed to revise 18 Forest Plans under a programmatic plan
amendment called the Northern Rocky Mountain Lynx Amendment (NRLA)
(U.S. Forest Service 2007). Some of the LCAS standards were changed to
guidelines because the Service determined that some risk factors were
not negatively affecting the contiguous U.S. DPS of lynx as a whole.
Since publication of the LCAS, lynx studied in the United States have
been shown to use a variety of sites and conditions for denning. Lynx
denning sites are not believed to be a limiting factor in Montana and
Maine study areas (Service 2007, pp. 48-49). Earlier assessments also
concluded that, in most geographic areas, denning habitat was not
likely limiting to lynx, and existing forest plan direction would not
result in adverse effects (Hickenbottom et al. 1999). After evaluating
Bunnell et al. (2006, entire) and Kolbe et al. (2007, entire), we
determined that the best information available did not indicate that
compacted snow routes increase competition from other species to levels
that adversely impact lynx populations in the NRLA area (Service 2007,
pp. 55). Since the LCAS was written, new information revealed the
importance of multi-storied stands for lynx (Squires et al. 2006). On
the basis of the above information, the USFS included a standard for
conserving multi-storied stands in the NRLA. This LCAS does not contain
this standard.
In addition to diverging from the standards in the LCAS because of
new information, the NRLA also deviated from the LCAS by allowing
additional fuels reduction projects in areas within the wildlands-
urban-interface (WUI). In our analysis of the NRLA, we determined that
the management in the NRLA area would provide for the recovery of lynx
in these areas by addressing the major reason we listed the lynx in
2000--the lack of guidance for conservation of lynx in Federal land
management plans. Consultation under section 7 of the Act was completed
for the NRLA in 2007, and it is now official land management direction
for the National Forests that adopted it.
In Maine, lynx populations occur in extensive boreal forest
landscapes where large, contiguous stands of young, regenerating
spruce-fir habitat
[[Page 8640]]
are prevalent and support high densities of snowshoe hares.
Historically, habitat was likely created by natural forest
disturbances, fire, insects and disease, and windthrow. Most of the
lynx in Maine occur on private, industrial forest lands. Large-scale,
industrial forest management has created the current habitat, and
future forest management that produces extensive stands supporting high
hare densities is needed to support lynx populations. The Service
developed Canada Lynx Habitat Management Guidelines for Maine
(McCollough 2007, entire). These guidelines specify the special
management--recommendations on land use, forest conditions, landscape
conditions, and silviculture requirements--needed to support lynx
populations based on the best available science (see discussion of
Healthy Forest Reserve Program for further details).
Criteria Used To Identify Critical Habitat
As required by section 4(b)(2) of the Act, we used the best
scientific data available to designate critical habitat. In order to
determine those specific areas occupied by the species at the time it
was listed on which are found those physical or biological features
essential to the conservation of the species, as required by section
3(5)(a)(i) of the Act, we reviewed the approach to the conservation of
the lynx provided in a recovery outline (Service 2005, entire);
information from State, Federal and Tribal agencies; and information
from academia and private organizations that have collected scientific
data on lynx.
The focus of our strategy in considering lands for designation as
critical habitat was on boreal forest landscapes of sufficient size to
encompass the temporal and spatial changes in habitat and snowshoe hare
populations to support interbreeding lynx populations or
metapopulations over time. These factors are included in the PCE for
lynx. According to the recovery strategy, areas that meet these
criteria are considered ``core habitat areas'' for lynx (USFWS 2005, p.
4); however, for critical habitat, we have refined areas based on
evidence of breeding populations. As stated in the proposed rule, the
areas we consider essential to the conservation of lynx have the
physical and biological features essential to lynx in sufficient
quantity and spatial arrangement, as evidenced by consistent occupancy
and reproduction by lynx. We focused on consistency of lynx presence
and reproduction, because areas with these characteristics represent
resiliency during population lows, which is key to the species'
survival. Areas that meet these criteria contrast with areas that may
serve as temporary habitat for unsuccessful dispersers during
population highs, but do not support lynx reproduction, and therefore
are not likely to play a role in lynx conservation. Individual lynx
maintain large home ranges; the areas identified as having features
essential to the conservation of the lynx are large enough to encompass
multiple home ranges. A secondary consideration is that, in addition to
supporting breeding populations, these areas provide connectivity among
patches of suitable habitat (e.g., patches containing abundant snowshoe
hares), whose locations in the landscape shift through time. Areas that
have historical records of lynx, but no record of reproduction, and
that support lynx during dispersal movements, are considered
``secondary areas'' (USFWS 2005, p. 4). Areas outside core and
secondary areas that have sporadic records of lynx are considered
``peripheral areas'' (USFWS 2005, p. 4).
We reviewed available information that pertains to the habitat
requirements of this species and its principal prey, the snowshoe hare.
This information included data in reports submitted by researchers
holding recovery permits under section 10(a)(1)(A) of the Act; research
published in peer-reviewed articles, presented in academic theses,
agency reports and unpublished data; and various Geographic Information
System (GIS) coverages (e.g., land cover type information, land
ownership information, snow depth information, topographic information,
locations of lynx obtained from radio-or GPS-collars and locations of
lynx confirmed via DNA analysis or other verified records).
In designating critical habitat for the lynx we used the best
scientific data available to evaluate areas that possess the physical
and biological features essential to the conservation of the species
and that may require special management considerations or protection.
In evaluating areas as critical habitat, we first conducted a two-part
analysis: (1) We relied on information used during listing of the
species, and any available newer information, to delineate the
geographic area occupied by the species at the time of listing, and (2)
used the best available scientific information to determine which
occupied areas contain the physical and biological features essential
to the conservation of the lynx.
In determining the geographic area occupied by the species, we
utilized data providing verified evidence of the occurrence of lynx and
evidence of the presence of breeding lynx populations as represented by
records of lynx reproduction. We find that evidence of breeding
populations is the best way to verify that the physical and biological
features essential to lynx are present in sufficient quantity and
spatial configuration to meet the needs of the species, and qualify as
critical habitat. We eliminated areas from consideration in two ways:
(1) Areas outside the known historical range and (2) data older than
1995 were not considered valid to our assessment of occurrence and
reproduction of lynx. We used data on the known historical range of the
lynx (e.g., McKelvey et al. 2000b, pp. 207-232; Hoving et al. 2003,
entire) to eliminate areas outside the historical range of the species.
We then focused on records since 1995 to ensure that this critical
habitat designation is based on the data that most closely represents
the current status of lynx in the contiguous United States and the
geographical area known to be occupied by the species at the time of
listing. Although the average lifespan of a wild lynx is not known, we
assumed that a lynx born in 1995 could have been alive in 2000 or 2003,
when the final listing rule and the clarification of findings were
published. Data after 1995 were considered valid. Recent verified lynx
occurrence records were provided by Federal research entities, State
wildlife agencies, academic researchers, and private individuals or
organizations working on lynx (K. Aubry, Pacific Northwest Research
Station, unpubl. data; S. Gehman, Wildthings Unlimited, unpubl. data;
S. Gniadek, Glacier National Park, unpubl. data; S. Loch, Independent
Scientist, and E. Lindquist, Superior National Forest, unpubl. data; K.
McKelvey, Rocky Mountain Research Station; unpubl. data; Minnesota DNR
2005 Web site; R. Moen, University of Minnesota, Natural Resources
Research Institute, unpubl. data.; J. Squires, Rocky Mountain Research
Station, unpubl. data; J. Vashon, Maine Department of Inland Fisheries
and Wildlife, unpubl. data).
We used only verified lynx records, because we wanted to rely on
the best available data to evaluate specific areas and their features
for critical habitat designation. The reliability of lynx occurrence
reports can be questionable because the bobcat, a common species, can
be confused with the lynx, which is similar in appearance.
Additionally, many surveys are conducted by snow tracking in which
correct identification of tracks can be difficult because of variable
conditions affecting the quality
[[Page 8641]]
of the track and variable expertise of the tracker. Our definition of a
verified lynx record is modified from McKelvey et al. (2000b, p. 209)--
(1) an animal (live or dead) in hand or observed closely by a person
knowledgeable in lynx identification, (2) genetic (DNA) confirmation,
(3) snow tracks only when confirmed by genetic analysis (e.g., McKelvey
et al. 2006, entire) or (4) location data from radio or GPS-collared
lynx. Documentation of lynx reproduction consists of lynx kittens in
hand, or observed with the mother by someone knowledgeable in lynx
identification, or snow tracks demonstrating family groups traveling
together, as identified by a person highly knowledgeable in
identification of carnivore tracks. However, we made an exception and
accepted snow track data from Maine because of the stringent protocols
used in confirming tracks as lynx and the minimal number of species in
the area with which lynx tracks could be misidentified (McCollough
2006, entire).
To define critical habitat according to section 3(5)(A) of the Act,
we then delineated, within the geographical area currently occupied by
the species at the time of listing, areas containing physical and
biological features essential to the conservation of the lynx. The
physical and biological features (as defined above under Primary
Constituent Elements) were determined by including recent lynx records,
evidence of breeding lynx populations, the boreal forest type that is
currently occupied by lynx in that particular region, and direct
connectivity with lynx populations in Canada. Lynx populations in the
contiguous United States are influenced by lynx population dynamics in
Canada (Thiel 1987; McKelvey et al. 2000a, p. 427, 2000c, p. 33). Many
of these populations in Canada are directly interconnected with United
States populations and are likely a source of emigration into the
contiguous United States; lynx from the contiguous United States are
known to move into Canada. Therefore, we assume that retaining
connectivity with larger lynx populations in Canada is important to
ensuring long-term persistence of lynx populations in the United
States. We assume that, regionally, lynx within the contiguous United
States and adjacent Canadian provinces interact as metapopulations.
Where available, data on historic average snow depths and bobcat
harvest provided additional insight for refining and delineating
appropriate boundaries for consideration as critical habitat.
In the North Cascades and Northern Rockies, the features essential
to the conservation of lynx, the majority of lynx records, evidence of
reproduction, and the boreal forest types are typically, though not
always, found above 4,000 feet (ft) (1,219 meters [m]) in elevation
(McKelvey et al. 2000b, pp. 243-245; McAllister et al. 2000, entire).
Thus, we limited the delineation of critical habitat to lands above
this elevation unless we had habitat data indicating that suitable
habitat exists below this elevation. Additionally, in the North
Cascades, features essential to the conservation of the lynx and the
majority of the lynx records and evidence of reproduction occur east of
the crest of the Cascade Mountains.
Based on comments received, the availability of better maps and
inspection of aerial photos, we adjusted some boundaries of the areas
proposed for critical habitat to better reflect the distribution of
lynx habitat. The boundaries are modified in Units 2 (Minnesota), 3
(northern Rockies), and 5 (GYA) to better reflect the location of the
PCE through the use of new habitat mapping data obtained from State and
Federal agencies and private industry. Boundaries in Units 1 (Maine)
and 4 (Washington) remained the same with the exception of 4(b)(2)
exclusions (discussed in Exclusions Under Section 4(b)(2) of the Act
section below).
Given the scale of the critical habitat units, it was not feasible
to completely avoid inclusion of water bodies, including lakes,
reservoirs and rivers, grasslands, or human-made structures such as
buildings, paved and gravel roadbeds, parking lots, and other
structures that lack the PCE for the lynx. These areas, including any
developed areas and the land on which such structures are located, that
exist inside critical habitat boundaries, are excluded by text and are
not designated critical habitat. Therefore, Federal actions limited to
these areas would not trigger section 7 consultation, unless they
affect the species or primary constituent element in adjacent critical
habitat.
When considering what areas to include as critical habitat, we
focused closely on areas with reliable evidence of lynx occurrence and
reproduction since 1995. For example, because there is no verified
evidence of lynx occupation or reproduction in New Hampshire or western
Maine since 1995, we did not consider these areas to have the physical
and biological features essential to lynx. In addition, while
evaluating information for the critical habitat proposal, we received
bobcat harvest data for Minnesota showing abundant bobcat harvest and a
lack of lynx presence in the area west of the critical habitat unit in
Minnesota, which suggests the western portion of the area preliminarily
delineated as core habitat in Minnesota may not be of high quality for
lynx.
We determined that the Kettle Range in north-central Washington
does not contain the physical and biological features essential to lynx
in viable quantity and spatial arrangement, and therefore we did not
include it in our proposed or final revised critical habitat rules. The
Kettle Range historically (through the 1970s) supported lynx
populations (Stinson 2001, pp.13-14). However, although boreal forest
habitat within the Kettle Range appears to contain high quality habitat
for lynx, there is no evidence that the Kettle Range is currently
occupied by a reproducing lynx population (Koehler 2005 entire). In
particular, while we continue to receive sporadic reports from the
area, we have no information to suggest a lynx population has occupied
the Kettle range since 1995, so it did not meet our criteria for
consideration as critical habitat. Therefore, we did not include the
Kettle Range in our critical habitat designation.
Native lynx were extirpated from their historic range in Colorado
and southern Wyoming in the Southern Rocky Mountains by the time the
lynx was listed in 2000. In 1999, the State of Colorado began to
reintroduce lynx. Subsequent to the release, lynx have dispersed to
many areas of varying habitat quality, such as to the Great Plains in
Nebraska, the Wasatch Range in Utah, and San Juan Mountains of New
Mexico. Although it is too early to determine whether the Colorado
introduction will result in a self-sustaining population, the
reintroduced lynx produced kittens in the early years of the program.
Over the last several years, reproduction has been very low, suggesting
that the population may not be viable (Shenk 2007, p. 1) and that
absent ingress from Canadian populations to the north, viability of any
of the contiguous U.S. lynx populations may be suspect (Murray et al.
2008). Due to the distances lynx must cover to reach the southern
Rockies from other occupied and reproductive populations, we are still
unable to conclude that this region has the necessary habitat to
maintain a lynx population. We determined that the marginal habitat in
the Southern Rockies, and habitat not within the historical range of
lynx where these animals have dispersed outside of Colorado, are not
essential to the conservation of lynx because they likely lack the
quantity and spatial arrangement of physical and biological features
essential to the species.
[[Page 8642]]
Many areas within the contiguous United States have one or more
individual lynx records with no evidence of persistent, reproducing
lynx populations. It is possible, though unlikely, that some of these
areas may support undocumented persistent populations of lynx. However,
most of these records are likely a result of wide-ranging dispersal
events, occur in habitat that is less suitable for lynx than in the
core areas, and are mostly disjunct from areas that contain persistent
lynx populations. We consider these areas as secondary or peripheral
(as defined in the Recovery Outline), and their role in sustaining
persistent lynx populations is unclear; such areas may provide habitat
to dispersing lynx, especially when populations are at a cyclic high.
The areas we consider essential to the conservation of lynx have the
PCE, which provide for the ability to maintain and produce lynx during
population lows. Due to their lack of demonstrated ability to provide
the PCE for conservation of the species, we do not believe that
secondary and peripheral areas meet the definition of critical habitat
for lynx.
Secondary and peripheral areas contain only periodic records of
lynx over time, and they lack evidence of reproducing lynx populations.
Habitat suitability for lynx has not been assessed throughout the
secondary and peripheral areas, so we are not certain whether the
essential features (i.e., PCE) are present. However, the relative lack
of lynx records over time, and, in particular the lack of evidence of
reproducing populations, may suggest that habitat (snowshoe hare
densities, in particular) has not been adequate historically, nor is it
currently adequate, to support reproducing lynx populations.
Additionally, some of the peripheral areas are naturally disjunct and
support few historical records of lynx.
Critical Habitat Designation
We are designating five units as critical habitat for the lynx
(Table 1). The critical habitat units described below constitute our
best assessment at this time of areas: (1) We determined to be occupied
at the time of listing, (2) that contain the physical and biological
features (i.e., the primary constituent element in the appropriate
spatial arrangement and quantity) essential for the conservation of the
species, and (3) that may require special management considerations or
protection. The five areas designated as critical habitat are Unit 1 in
northwestern Maine, Unit 2 in the Arrowhead region of Minnesota, Unit 3
in Montana and Idaho, Unit 4 in the North Cascades of Washington, and
Unit 5 in the Greater Yellowstone Area of Wyoming, Montana, and Idaho.
To further understand the location of these designated areas, please
see the associated maps found within this final rule (also available at
our Web site: http://mountain-prairie.fws.gov/species/mammals/lynx/).
Table 1 shows the critical habitat unit areas, area that was proposed
for designation, approximate area being excluded from the designation,
land ownership, and the approximate area being designated as critical
habitat.
Table 1--Critical Habitat Units Designated for the Lynx
----------------------------------------------------------------------------------------------------------------
Area proposed
Critical habitat units for designation Excluded area Land ownership Area designated
km\2\ (mi\2\) km\2\ (mi\2\) km\2\ (mi\2\)
----------------------------------------------------------------------------------------------------------------
Unit 1: Maine....................... 27,539.1 2,884.0 Private, State, Federal 24,597.5
(10,632.9) (1,113.5) (9,497.2)
Unit 2: Minnesota................... 21,305.4 202.6 Federal, Private, State 20,888.4
(8,226.1) (78.2) (8,065.1)
Unit 3: Northern Rocky Mountains (MT 29,276.5 956.6 Federal, Private, State 26,162.9
and ID). (11,303.7) (369.4) (10,101.6)
Unit 4: North Cascades.............. 5,179.7 424.7 Federal, Private....... 4,755.0
(1,999.9) (164.0) (1,835.9)
Unit 5: Greater Yellowstone Area.... 27,427.4 0 Federal, State, Private 24,606.1
(10,589.8) (0) (9,500.5)
---------------------------------------------------------------------------
Total........................... 110,728.1 4,467.9 ....................... 101,009.9
(42,752.4) (1,725.1) ....................... (39,000.3)
----------------------------------------------------------------------------------------------------------------
We provide a brief description of all units, and reasons why they
meet the definition of critical habitat for the Canada lynx. The
section that follows explains our decision to exclude certain lands
pursuant to Section 4(b)(2) of the Act.
Unit 1: Northern Maine--24,597 km\2\ (9,497 mi\2\)
Unit 1 is located in northern Maine in portions of Aroostook,
Franklin, Penobscot, Piscataquis, and Somerset Counties. This area was
occupied by the lynx at the time of listing and is currently occupied
by the species. Lynx in northwestern Maine have high productivity: 91
percent of available adult females (greater than 2 years) produced
litters, and litters averaged 2.83 kittens (Vashon et al. 2005b, pp. 4-
6). This area contains the physical and biological features essential
to the conservation of the lynx as it is comprised of the primary
constituent element and its components laid out in the appropriate
quantity and spatial arrangement. This area is also important for lynx
conservation because it is the only area in the northeastern region of
the lynx's range within the contiguous United States that currently
supports breeding lynx populations and likely acts as a source or
provides connectivity for more peripheral portions of the lynx's range
in the Northeast. Timber harvest and management is the dominant land
use within the unit; therefore, special management is required
depending on the silvicultural practices conducted (68 FR 40075; July
3, 2003). Timber management practices that provide for a dense
understory are beneficial for lynx and snowshoe hares. In this area,
other habitat-related threats to lynx are lack of an International
conservation strategy for lynx, traffic, and development (68 FR 40075).
Unit 2: Northeastern Minnesota--20,888 km\2\ (8,065 mi\2\)
Unit 2 is located in northeastern Minnesota in portions of Cook,
Koochiching, Lake, and St. Louis Counties, and Superior National
Forest. In 2003, when we last formally reviewed the status of the lynx,
[[Page 8643]]
numerous verified records of lynx existed from northeastern Minnesota
(68 FR 40076, July 3, 2003). The area was occupied at the time of
listing and is currently occupied by the species. Lynx are currently
known to be distributed throughout northeastern Minnesota, as has been
confirmed through DNA analysis, radio- and GPS-collared animals, and
documentation of reproduction (Moen et al. 2004, entire; Minnesota DNR
2005, entire; S. Loch, unpubl. data; Minnesota Department of Natural
Resources, unpubl. data). This area contains the physical and
biological features essential to the conservation of the lynx as it is
comprised of the primary constituent element and its components laid
out in the appropriate quantity and spatial arrangement. This area is
essential to the conservation of lynx because it is the only area in
the Great Lakes region for which we have evidence of recent lynx
reproduction. It likely acts as a source or provides connectivity for
more peripheral portions of the lynx's range in the region. Timber
harvest and management is a dominant land use (68 FR 40075). Therefore,
special management is required depending on the silvicultural practices
conducted. Timber management practices that provide for a dense
understory are beneficial for lynx and snowshoe hares. In this area,
lack of an International conservation strategy for lynx, fire
suppression or fuels treatment, traffic, and development are other
habitat-related threats to lynx (68 FR 40075).
Specific sections of land encompassing a mining district in
Minnesota known as the Iron Range are not included in this revised
designation because they do not contain the physical and biological
features essential to the conservation of lynx. In much of the Iron
Range, mining has removed all vegetation and much of this area was
subsequently flooded. Areas that are still vegetated and not flooded
are extensively fragmented by the mined areas and haul roads. We used
the ``GAP Land Cover--Tiled Raster'' dataset (Minnesota Department of
Natural Resources 2002) to identify sections that are heavily
influenced by mining activities. Areas described as ``Barren'' and
``Mixed Developed'' in the GAP dataset seemed to correspond to areas
that were mined or extensively disturbed by mining-related activities
(e.g., service roads), based on aerial photos (National Agricultural
Imagery Program 2003). Further inspection of aerial photos indicates
that additional sections exist with extensive effects of mining, beyond
that indicated by the GAP data, which is based on 10-15-year-old
satellite imagery. These disturbed areas are not included in this final
designation and are reflected in the final maps provided with the rule
and in the unit boundary description.
Unit 3: Northern Rocky Mountains 26,163 km\2\ (10,102 mi\2\)
Unit 3 is located in northwestern Montana and a small portion of
northeastern Idaho in portions of Boundary County in Idaho and
Flathead, Glacier, Granite, Lake, Lewis and Clark, Lincoln, Missoula,
Pondera, Powell and Teton Counties in Montana. It includes National
Forest lands and BLM lands in the Garnet Resource Area. This area was
occupied by lynx at the time of listing and is currently occupied by
the species. Lynx are known to be widely distributed throughout this
unit and breeding has been documented in multiple locations (Gehman et
al. 2004, pp. 24-29; Squires et al. 2004a, pp. 7-10 and 2004b, pp. 8-
10). This area contains the physical and biological features essential
to the conservation of the lynx as it is comprised of the primary
constituent element and its components laid out in the appropriate
quantity and spatial arrangement. This area is essential to the
conservation of lynx because it appears to support the highest density
lynx populations in the Northern Rocky Mountain region of the lynx's
range. It likely acts as a source for lynx and provides connectivity to
other portions of the lynx's range in the Rocky Mountains, particularly
the Yellowstone area. Timber harvest and management is a dominant land
use (68 FR 40075); therefore, special management is required depending
on the silvicultural practices conducted. Timber management practices
that provide for a dense understory are beneficial for lynx and
snowshoe hares. In this area, fire suppression or fuels treatment, lack
of an International conservation strategy for lynx, traffic, and
development are other habitat-related threats to lynx (68 FR 40075).
Unit 4: North Cascades 4,755 km\2\ (1,836 mi\2\)
Unit 4 is located in north-central Washington in portions of Chelan
and Okanogan Counties, and includes BLM lands in the Spokane District.
This area was occupied at the time lynx was listed and is currently
occupied by the species. This unit supports the highest densities of
lynx in Washington (Stinson 2001). Evidence from limited recent
research and DNA shows lynx distributed within this unit, with breeding
being documented (von Kienast 2003, p. 36; K. Aubry, Pacific Northwest
Research Station, unpubl. data; B. Maletzke, Washington State
University, unpubl. data). Although there appear to be fewer records in
the portion of the unit south of Highway 20, few surveys have been
conducted in this portion of the unit. This area contains boreal forest
habitat and the components essential to the conservation of the lynx.
Further, it is contiguous with the portion of the unit north of Highway
20, particularly in winter when deep snows close Highway 20. The
northern portion of the unit adjacent to the Canadian border also
appears to support few recent lynx records; however, it is designated
wilderness, so access to survey this area is difficult. This northern
portion contains extensive boreal forest vegetation types and the
components essential to the conservation of the lynx. Additionally,
lynx populations exist in British Columbia directly north of this unit
(E. Lofrothe, British Columbia Ministry of the Environment, unpubl.
data).
This area contains the physical and biological features essential
to the conservation of the lynx as it contains the primary constituent
element and its components laid out in the appropriate quantity and
spatial arrangement. This area is essential to the conservation of lynx
because it is the only area in the Cascades region of the lynx's range
that is known to support breeding lynx populations. Timber harvest and
management is a dominant land use; therefore, special management is
required depending on the silvicultural practices conducted. Timber
management practices that provide for a density understory are
beneficial for lynx and snowshoe hares. In this area, Federal land
management plans have not been amended to incorporate lynx
conservation. The lack of an International conservation strategy for
lynx, traffic, and development are other habitat-related threats to
lynx (68 FR 40075).
Unit 5: Greater Yellowstone Area 24,606 km\2\ (9,500 mi\2\)
Unit 5 is located in Yellowstone National Park and surrounding
lands in southwestern Montana and northwestern Wyoming. Lands in this
unit are found in Gallatin, Park, Sweetgrass, Stillwater, and Carbon
Counties in Montana, and Park, Teton, Fremont, Sublette, and Lincoln
Counties in Wyoming. This area was occupied by lynx at the time of
listing and is currently occupied by the species. The area contains the
physical and biological features essential to the conservation of the
lynx. The GYA is
[[Page 8644]]
naturally marginal lynx habitat with highly fragmented foraging
habitat. For this reason lynx home ranges in this unit are likely to be
larger and incorporate large areas of non-foraging matrix habitat. In
this area, fire suppression or fuels treatment, lack of an
International conservation strategy for lynx, traffic, and development
are other habitat-related threats to lynx (68 FR 40075). Therefore,
special management is required depending on the fire suppression and
fuels treatment practices conducted and the design of highway
development projects.
Effects of Critical Habitat Designation
Section 7 Consultation
Section 7 of the Act requires Federal agencies to ensure that
actions they fund, authorize, or carry out are not likely to jeopardize
the continued existence of a listed species or destroy or adversely
modify critical habitat. Decisions by the Fifth and Ninth Circuit Court
of Appeals have invalidated our definition of ``destruction or adverse
modification'' (50 CFR 402.02) (see Gifford Pinchot Task Force v. U.S.
Fish and Wildlife Service 378 F.3d 1059 (9th Cir 2004) and Sierra Club
v. U.S. Fish and Wildlife Service et al., 245 F.3d 434, 442F (5th Cir
2001)), and we do not rely on our regulatory definition when analyzing
whether an action is likely to destroy or adversely modify critical
habitat. Under the Act, we determine destruction or adverse
modification on the basis of whether, with implementation of the
proposed Federal action, the affected critical habitat would remain
functional (or retain the current ability for the PCEs to be
functionally established) to serve its intended conservation role for
the species.
Under section 7(a)(2) of the Act, if a Federal action may affect a
listed species or its critical habitat, the responsible Federal agency
(action agency) must analyze the effects of their action on the listed
species. If the action may adversely affect listed species, the Federal
agency must enter into consultation with us. As a result of this
consultation, we may document compliance with the requirements of
section 7(a)(2) through our issuance of:
1. A concurrence letter for Federal actions that may affect, but
are not likely to adversely affect, listed species or critical habitat;
or
2. A biological opinion for Federal actions likely to adversely
affect listed species or critical habitat.
When we issue a biological opinion concluding that a project is
likely to jeopardize the continued existence of a listed species or
destroy or adversely modify critical habitat, we also provide
reasonable and prudent alternatives to the project, if any are
identifiable. We define ``Reasonable and prudent alternatives'' at 50
CFR 402.02 as alternative actions identified during consultation that:
Can be implemented in a manner consistent with the
intended purpose of the action,
Can be implemented consistently with the scope of the
Federal agency's legal authority and jurisdiction,
Are economically and technologically feasible, and
Would, in the Director's opinion, avoid jeopardizing the
continued existence of the listed species or destroying or adversely
modifying critical habitat.
Reasonable and prudent alternatives can vary from slight project
modifications to extensive redesign or relocation of the project. Costs
associated with implementing a reasonable and prudent alternative are
similarly variable.
Regulations at 50 CFR 402.16 require Federal agencies to reinitiate
consultation on previously reviewed actions in instances where we have
listed a new species or subsequently designated critical habitat that
may be affected and the Federal agency has retained discretionary
involvement or control over the action (or the agency's discretionary
involvement or control is authorized by law). Consequently, Federal
agencies may sometimes need to request reinitiation of consultation
with us on actions for which formal consultation has been completed, if
those actions with discretionary involvement or control may affect
subsequently listed species or designated critical habitat.
Federal activities that may affect the lynx or its designated
critical habitat will require section 7(a)(2) consultation under the
Act. Activities on State, tribal, local, or private lands requiring a
Federal permit (such as a permit from the U.S. Army Corps of Engineers
under section 404 of the Clean Water Act (33 U.S.C. 1251 et seq.) or
involving some other Federal action (such as funding from the Federal
Highway Administration, the Federal Aviation Administration, or the
Federal Emergency Management Agency) or a permit from us under section
10(a)(1)(B) of the Act) will also be subject to the consultation
process under section 7(a)(2) of the Act. Federal actions not affecting
listed species or critical habitat, and actions on State, tribal, local
or private lands that are not Federally funded, authorized, or carried
out, do not require section 7(a)(2) consultations.
Application of the ``Adverse Modification Standard''
The key factor related to the adverse modification determination is
whether, with implementation of the proposed Federal action, the
affected critical habitat would remain functional (or retain the
current ability for the PCEs to be functionally established) to serve
the intended conservation role for the species. Activities that may
destroy or adversely modify critical habitat are those that alter the
physical and biological features to an extent that appreciably reduces
the conservation value of critical habitat for lynx. Generally, the
conservation role of lynx critical habitat units is to support viable
core area populations.
Section 4(b)(8) of the Act requires us to briefly evaluate and
describe, in any proposed or final regulation that designates critical
habitat, activities involving a Federal action that may destroy or
adversely modify such habitat, or that may be affected by such
designation.
Activities that, when carried out, funded, or authorized by a
Federal agency, may affect critical habitat, and therefore, should
result in consultation, include, but are not limited to:
1. Actions that would reduce or remove understory vegetation within
boreal forest stands on a scale proportionate to the large landscape
used by lynx. Such activities could include, but are not limited to,
forest stand thinning, timber harvest, and fuels treatment of forest
stands. These activities could significantly reduce the quality of
snowshoe hare habitat such that the landscape's ability to produce
adequate densities of snowshoe hares to support persistent lynx
populations is at least temporarily diminished.
2. Actions that would cause permanent loss or conversion of the
boreal forest on a scale proportionate to the large landscape used by
lynx. Such activities could include, but are not limited to,
recreational area developments; certain types of mining activities and
associated developments; and road building. Such activities could
eliminate and fragment lynx and snowshoe hare habitat.
3. Actions that would increase traffic volume and speed on roads
that divide lynx critical habitat. Such activities could include, but
are not limited to, transportation projects to upgrade roads or
development of a new tourist destination. These activities could reduce
connectivity within the boreal forest landscape for lynx, and could
[[Page 8645]]
result in increased mortality of lynx within the critical habitat
units, because lynx are highly mobile and frequently cross roads during
dispersal, exploratory movements, or travel within their home ranges.
In matrix habitat, activities that change vegetation structure or
condition would not be considered an adverse effect to lynx critical
habitat unless those activities would create a barrier or impede lynx
movement between patches of foraging habitat and between foraging and
denning habitat within a potential home range, or if they would
adversely affect adjacent foraging habitat or denning habitat. For
example, a pre-commercial thinning or fuels reduction project in matrix
habitat would not adversely affect lynx critical habitat, and would not
require consultation. However, a new highway passing through matrix
habitat that would impede lynx movement may be an adverse effect to
lynx critical habitat, and would require consultation. The scale of any
activity should be examined to determine whether direct or indirect
alteration of habitat would occur to the extent that the value of
critical habitat for the survival and recovery of lynx would be
appreciably diminished.
If you have questions regarding whether specific activities may
constitute destruction or adverse modification of critical habitat,
contact the Supervisor of the appropriate Ecological Services Field
Office (see list below).
------------------------------------------------------------------------
State Address Phone number
------------------------------------------------------------------------
MAINE......................... 1168 Main Street, Old (207) 827-5938
Town, Maine 04468.
MINNESOTA..................... 4101 East 80th Street, (612) 725-3548
Bloomington,
Minnesota 55425.
MONTANA....................... 585 Shepard Way, (406) 449-5225
Helena, Montana 59601.
WASHINGTON AND IDAHO.......... 11103 E. Montgomery (509) 893-8015
Drive, Spokane,
Washington 99206.
WYOMING....................... 5353 Yellowstone Road, (307) 772-2374
Suite 308A, Cheyenne,
Wyoming 82009.
------------------------------------------------------------------------
All of the units designated as critical habitat, as well as
specific areas that have been excluded, contain features essential to
the conservation of the lynx. All units are within the geographical
range of the species, and all are currently occupied by the species
based on based on surveys and research documenting the presence and
reproduction of lynx (68 FR 40076, July 3, 2003). Under section 7 of
the Act, Federal agencies already consult with us on activities in
areas currently occupied by the lynx, or if the species may be affected
by the action, to ensure that their actions do not jeopardize the
continued existence of the lynx.
Application of Section 4(a)(3) of the Act
The Sikes Act of 1997 (Sikes Act) (16 U.S.C. 670a) required each
military installation that includes land and water suitable for the
conservation and management of natural resources to complete an
integrated natural resource management plan (INRMP) by November 17,
2001. An INRMP integrates implementation of the military mission of the
installation with stewardship of the natural resources found on the
base. Each INRMP includes:
An assessment of the ecological needs on the installation,
including the need to provide for the conservation of listed species;
A statement of goals and priorities;
A detailed description of management actions to be
implemented to provide for these ecological needs; and
A monitoring and adaptive management plan.
Among other things, each INRMP must, to the extent appropriate and
applicable, provide for fish and wildlife management; fish and wildlife
habitat enhancement or modification; wetland protection, enhancement,
and restoration where necessary to support fish and wildlife; and
enforcement of applicable natural resource laws.
The National Defense Authorization Act for Fiscal Year 2004 (Pub.
L. 108-136) amended the Act to limit areas eligible for designation as
critical habitat. Specifically, section 4(a)(3)(B)(i) of the Act (16
U.S.C. 1533(a)(3)(B)(i)) now provides: ``The Secretary shall not
designate as critical habitat any lands or other geographical areas
owned or controlled by the Department of Defense, or designated for its
use, that are subject to an integrated natural resources management
plan prepared under section 101 of the Sikes Act (16 U.S.C. 670a), if
the Secretary determines in writing that such plan provides a benefit
to the species for which critical habitat is proposed for
designation.''
There are no Department of Defense lands with a completed INRMP
within the critical habitat designation, and therefore, no analysis of
potential exclusions under section 4(a)(3) of the Act is necessary.
Application of Section 4(b)(2) of the Act
Section 4(b)(2) of the Act states that the Secretary must designate
or revise critical habitat on the basis of the best available
scientific data after taking into consideration the economic impact,
national security impact, and any other relevant impact of specifying
any particular area as critical habitat. The Secretary may exclude an
area from critical habitat if he determines that the benefits of such
exclusion outweigh the benefits of specifying such area as part of the
critical habitat, unless he determines, based on the best scientific
data available, that the failure to designate such area as critical
habitat will result in the extinction of the species. In making that
determination, the statute, as well as the legislative history, is
clear that the Secretary has broad discretion regarding which factor(s)
to use and how much weight to give to any factor.
Under section 4(b)(2) of the Act, in considering whether to exclude
a particular area from the designation, we must identify the benefits
of including the specific area in the designation, identify the
benefits of excluding the specific area from the designation, and
determine whether the benefits of exclusion outweigh the benefits of
inclusion. If, based on this analysis, we determine that the benefits
of exclusion would outweigh the benefits of inclusion of an area, we
can then exclude the area only if such exclusions would not result in
the extinction of the species.
Under section 4(b)(2) of the Act, we must consider all relevant
impacts, including economic impacts. We consider a number of factors in
a section 4(b)(2) analysis. For example, we consider whether there are
lands owned or managed by the Department of Defense (DOD) where a
national security impact might exist. We also consider whether the
landowners have developed any conservation plans for the area, or
whether there are conservation partnerships that would be encouraged by
designation of, or exclusion from, critical habitat. In addition, we
look at any tribal issues, and consider the government-to-government
relationship of the United States with tribal entities.
[[Page 8646]]
We also consider any social impacts that might occur because of the
designation.
We determined that lands managed under the Maine Healthy Forest
Reserve Program and lands managed by the State of Washington Department
of Natural Resources (WADNR) should be excluded from the final
designation based on the management plans that govern activities on
these lands. Tribal lands have also been excluded from the final
designation based on Secretarial Order 3206, ``American Indian Tribal
Rights, Federal-Tribal Trust Responsibilities, and the Endangered
Species Act'' (June 5, 1997).
Benefits of Designating Critical Habitat
The process of designating critical habitat as described in the Act
requires that the Service identify those lands on which are found the
physical or biological features essential to the conservation of the
species that may require special management considerations or
protection, and those areas outside the geographical area occupied by
the species at the time of listing that are essential to the
conservation of the species. In identifying those lands, the Service
must consider the recovery needs of the species, such that, on the
basis of the best scientific and commercial data available at the time
of designation, the habitat that is identified, if managed, could
provide for the survival and recovery of the species.
A critical habitat designation may be beneficial--identification of
areas that are essential for the conservation of the species can, if
managed, provide for the recovery of a species. The process of
proposing and finalizing a critical habitat rule provides the Service
with the opportunity to determine the physical and biological features
essential to the conservation of the species within the geographical
area occupied by the species at the time of listing, as well as to
determine other areas essential for the conservation of the species.
The designation process includes peer review and public comment on the
identified physical and biological features and essential areas. This
process is valuable to land owners and managers in developing
conservation or management plans for identified areas, as well as any
other occupied habitat or suitable habitat that may not have been
included in the Service's determination of essential habitat.
A critical habitat designation may provide a regulatory benefit.
The consultation provisions under section 7(a)(2) of the Act constitute
the regulatory benefits of critical habitat. As discussed above,
Federal agencies must consult on discretionary actions that may affect
critical habitat and must avoid destroying or adversely modifying
critical habitat. Federal agencies must also consult on discretionary
actions that may affect a listed species and refrain from undertaking
actions that are likely to jeopardize the continued existence of such
species. The analysis of effects to critical habitat is a separate and
different analysis from that of the effects to the species. Therefore,
any difference in outcomes of these two analyses represents the
regulatory benefit of critical habitat. For some species, and in some
locations, the outcome of these analyses will be similar, because
effects on habitat will often also result in effects on the species.
However, the regulatory standard of impacts to the species, and impacts
to critical habitat, are different.
An analysis of effects on the species requires a determination of
whether the impact will jeopardize the species' survival; an analysis
of effects to critical habitat requires a determination of whether the
impact will adversely modify the habitat in a way that will affect both
the conservation of the species, and its recovery. This difference in
regulatory standards was emphasized in the Ninth Circuit's decision in
Gifford Pinchot Task Force v. FWS (9th Cir. 2004). Therefore, critical
habitat designations may provide regulatory benefits additional to the
listing of a species that focus on recovery of the species.
Two limitations to the regulatory effect of critical habitat exist.
First, a section 7(a)(2) consultation is required only where an action
is authorized, funded, or carried out by any Federal agency; if there
is no Federal action, the designation of private lands as critical
habitat does not restrict any actions that destroy or adversely modify
critical habitat. Second, the designation only limits destruction or
adverse modification. By its nature, the prohibition on adverse
modification is designed to ensure that the conservation role and
function of those areas that contain the physical and biological
features essential to the conservation of the species or of unoccupied
areas that are essential for the conservation of the species are not
appreciably reduced. Critical habitat designation alone, however, does
not require property owners to undertake affirmative actions to promote
the recovery of the species.
Once an agency determines that consultation under section 7(a)(2)
of the Act is necessary, the process may conclude informally if a
proposed Federal action is not likely to adversely affect critical
habitat. However, if it is determined through informal consultation
that adverse impacts are likely to occur, the Federal agency initiates
formal consultation. Formal consultation concludes when we issue a
biological opinion on whether the proposed Federal action is likely to
result in destruction or adverse modification of critical habitat, or
result in jeopardy to the species.
A biological opinion that concludes no destruction or adverse
modification of critical habitat will occur as a result of the action
may contain discretionary conservation recommendations to minimize
adverse effects to the physical and biological features essential to
the conservation of the species. We only suggest reasonable and prudent
alternatives to the proposed Federal action only when our biological
opinion results in an adverse modification determination.
As stated above, the designation of critical habitat does not
require that any management or recovery actions take place on the lands
included in the designation. Even in cases where consultation has been
initiated under section 7(a)(2) of the Act, the end result of
consultation is to avoid jeopardy to the species and/or adverse
modification of its critical habitat, but not necessarily to manage
critical habitat or institute recovery actions on critical habitat.
Conversely, voluntary conservation efforts implemented through
management plans institute proactive actions over the lands they
encompass and are often put in place to remove or reduce known threats
to a species or its habitat; therefore implementing recovery actions.
We believe that, in many instances, the benefit of critical habitat
designation is low compared to the conservation benefit that can be
achieved through conservation efforts or management plans, especially
when the likelihood of a Federal action occurring is low. The
conservation achieved through implementing Habitat Conservation Plans
(HCPs), Safe Harbor Agreements, or experimental populations established
under section 10 of the Act or other habitat management plans or
agreements is typically greater than what we achieve through multiple
project-by-project, section 7(a)(2) consultations involving
consideration of critical habitat. Management plans may commit
resources to implement long-term management and protection to
particular habitat for at least one and possibly additional listed or
sensitive species. Section 7(a)(1) commits Federal agencies to
utilizing their authorities in furtherance of the purposes of the Act,
[[Page 8647]]
and in carrying out conservation of listed species. Beyond that,
Section 7(a)(2) consultations commit Federal agencies to preventing
adverse modification of critical habitat caused by a particular
project, and not to providing conservation or long-term benefits to
areas not affected by the proposed project. Implementation of an HCP,
management plan, or agreement that considers enhancement or recovery as
the management standard may often provide as much or more benefit than
a consultation for critical habitat designation.
Critical habitat designation may provide educational benefits.
Designation of critical habitat serves to educate landowners, State and
local governments, and the public regarding the potential conservation
value of an area. This helps focus and promote conservation efforts by
other parties by clearly delineating areas of high conservation value
for the affected species. In general, critical habitat designation
always has educational benefits; however, in some cases it may be
redundant with other educational effects. For example, HCPs have
significant public input and may largely duplicate the educational
benefits of a critical habitat designation. Including lands in critical
habitat also would inform State agencies and local governments about
areas that could be conserved under State laws or local ordinances.
Benefits of Excluding Non-Federal Lands With Conservation Partnerships
Most federally listed species in the United States will not recover
without the cooperation of non-Federal landowners. More than 60 percent
of the United States is privately owned (National Wilderness Institute
1995), and at least 80 percent of endangered or threatened species
occur either partially or solely on private lands (Crouse et al. 2002,
p. 720). Stein et al. (1995, p. 400) found that only about 12 percent
of listed species were found almost exclusively on Federal lands (90 to
100 percent of their known occurrences restricted to Federal lands) and
that 50 percent of federally listed species are not known to occur on
Federal lands at all.
Given the distribution of listed species with respect to land
ownership, conservation of listed species in many parts of the United
States is dependent upon working partnerships with a wide variety of
entities and the voluntary cooperation of many non-Federal landowners
(Wilcove and Chen 1998; Crouse et al. 2002; James 2002). Building
partnerships and promoting voluntary cooperation of landowners are
essential to our understanding the status of species on non-Federal
lands, and necessary for us to implement recovery actions such as
reintroducing listed species and restoring and protecting habitat.
Many non-Federal landowners derive satisfaction from contributing
to endangered species recovery. We promote these private-sector efforts
through the Department of the Interior's Cooperative Conservation
philosophy. Conservation agreements with non-Federal landowners (e.g.,
HCPs, safe harbor agreements) enhance species conservation by extending
species protections beyond those available through section 7(a)(2)
consultations. In the past decade, we have encouraged non-Federal
landowners to enter into conservation agreements, based on the view
that we can achieve greater species conservation on non-Federal land
through such partnerships than we can through regulatory methods (61 FR
63854, December 2, 1996).
Many private landowners, however, are wary of the possible
consequences of attracting endangered species to their property.
Mounting evidence suggests that some regulatory actions by the Federal
Government, while well-intentioned and required by law, can (under
certain circumstances) have unintended negative consequences for the
conservation of species on private lands (Wilcove et al. 1996; Bean
2002; Conner and Mathews 2002; James 2002; Koch 2002; Brook et al.
2003). Many landowners fear a decline in their property value due to
real or perceived restrictions on land-use options where threatened or
endangered species are found. Consequently, harboring endangered
species is viewed by many landowners as a liability. This perception
results in anti-conservation incentives, because maintaining habitats
that harbor endangered species represents a risk to future economic
opportunities (Main et al. 1999; Brook et al. 2003).
According to some researchers, the designation of critical habitat
on private lands significantly reduces the likelihood that landowners
will support and carry out conservation actions (Main et al. 1999; Bean
2002; Brook et al. 2003). The magnitude of this outcome is greatly
amplified in situations where active management measures (such as
reintroduction, fire management, control of invasive species) are
necessary for species conservation (Bean 2002). We believe that the
judicious exclusion of specific areas of non-federally owned lands from
critical habitat designations can contribute to species recovery and
provide a superior level of conservation.
The purpose of designating critical habitat is to contribute to the
conservation of threatened and endangered species and the ecosystems
upon which they depend. The outcome of the designation, triggering
regulatory requirements for actions funded, authorized, or carried out
by Federal agencies under section 7(a)(2) of the Act, can sometimes be
counterproductive to its intended purpose on non-Federal lands. Thus,
the benefits of excluding areas that are covered by effective
partnerships or other conservation commitments can often be high.
Benefits of Excluding Lands With HCPs or Other Management Plans From
Critical Habitat
The benefit of excluding lands with approved HCPs from critical
habitat designation includes relieving landowners, communities, and
counties of any additional regulatory burden that might be imposed by
critical habitat. Many HCPs take years to develop, and upon completion,
are consistent with recovery objectives for listed species that are
covered within the plan area. Many conservation plans also provide
conservation benefits to unlisted sensitive species. Imposing an
additional regulatory review as a result of the designation of critical
habitat may undermine conservation efforts and partnerships designed to
proactively protect species to ensure that listing under the Act will
not be necessary. Our experience in implementing the Act has found that
designation of critical habitat within the boundaries of management
plans that provide conservation measures for a species is a
disincentive to many entities which are either currently developing
such plans, or contemplating doing so in the future, because one of the
incentives for undertaking conservation is greater ease of permitting
where listed species will be affected. Addition of a new regulatory
requirement would remove a significant incentive for undertaking the
time and expense of management planning. In fact, designating critical
habitat in areas covered by a pending HCP or conservation plan could
result in the loss of some species' benefits if participants abandon
the planning process, in part because of the strength of the perceived
additional regulatory compliance that such designation would entail.
The time and cost of regulatory compliance for a critical habitat
designation do not have to be quantified for them to be perceived as an
additional Federal regulatory burden
[[Page 8648]]
sufficient to discourage continued participation in developing plans
targeting listed species' conservation.
A related benefit of excluding lands covered by approved HCPs from
critical habitat designation is the unhindered, continued ability it
gives us to seek new partnerships with future plan participants,
including States, counties, local jurisdictions, conservation
organizations, and private landowners, which together can implement
conservation actions that we would be unable to accomplish otherwise.
We have found that potential participants are not inclined to
participate in such management plans when we designate critical habitat
within the area that would be covered by such a management plan, thus
having a negative effect on our ability to establish new partnerships
to develop these plans, particularly plans that address landscape-level
conservation of species and habitats. By excluding these lands, we
preserve our current partnerships and encourage additional conservation
actions in the future.
We also note that permit issuance in association with HCP
applications require consultation under section 7(a)(2) of the Act,
which would include the review the effects of all HCP-covered
activities that might adversely impact the species under a jeopardy
standard, including possibly significant habitat modification (see
definition of ``harm'' at 50 CFR 17.3), even without the critical
habitat designation. In addition, all other Federal actions that may
affect the listed species would still require consultation under
section 7(a)(2) of the Act, and we would review these actions for
possibly significant habitat modification in accordance with the
definition of ``harm'' referenced above.
Tribal Lands Excluded From Lynx Critical Habitat
Tribal lands included in the proposed designation were those of the
Houlton Band of Maliseet Indians, Aroostook Band of Micmac Indians,
Passamaquoddy Tribe, and Penobscot Indian Nation in Maine (Unit 1),
Grand Portage Indian Reservation and Vermillion Lake Indian Reservation
in Minnesota (Unit 2), and the Flathead Indian Reservation in Montana
(Unit 3). In the proposed rule, we requested comments on whether Tribal
lands in the Northern Rockies, Maine, and Minnesota need to be included
pursuant to Executive Order 3206. The amount of Tribal lands proposed
was relatively small in size (totaling approximately 224 km2
(86.3 mi2) in Maine, 203 km2 (78.2
mi2) in Minnesota, and 957 km2 (369.4
mi2) in Montana). We contacted and met with a number of
Tribes to discuss the proposed designation, and we also received
comments from numerous Tribes requesting that their lands not be
designated as critical habitat because of their sovereign rights, in
addition to concerns about economic impacts and the effect on their
ability to manage natural resources.
Benefits of Inclusion
The primary benefit of including Tribal lands in the lynx critical
habitat designation would be education that could be exchanged on land
management methods that would benefit the species.
Potentially, some activities could be authorized, funded, or
carried out by a Federal agency, which would require consultation and
perhaps action modification to ensure that the physical and biological
features essential to lynx are not destroyed or adversely modified.
Benefits of Exclusion
Tribal lands are small in size relative to the large landscape
required to sustain the lynx population in these areas. The larger
landscape in Maine is comprised of lands managed for commercial
forestry, and in Minnesota and Montana the larger landscape is managed
by the USFS, which revised its forest plans to address the needs for
lynx. Therefore, although these Tribal lands support lynx habitat and
the PCE, they have a minor role in lynx conservation compared to the
commercial forestlands in Maine and National Forest lands in Minnesota
and Montana. Due to the management plans and practices that are
designed to avoid adverse effects to lynx and lynx habitat, and that
are already in place on Tribal lands, it is highly unlikely that
activities approaching the threshold of adverse modification of
critical habitat would occur.
Secretarial Order 3206, ``American Indian Tribal Rights, Federal-
Tribal Trust Responsibilities, and the Endangered Species Act'' (June
5, 1997) states that, ``Critical habitat shall not be designated in
such areas unless it is determined essential to conserve a listed
species''. The President's memorandum of April 29, 1994, ``Government-
to-Government Relations with Native American Tribal Governments'' (59
FR 22951); Executive Order 13175 ``Consultation and Coordination with
Indian Tribal Governments;'' and the relevant provision of the
Departmental Manual of the Department of the Interior (512 DM 2) also
emphasize that Tribal lands should be evaluated to determine whether
their inclusion in a critical habitat designation is essential to the
species. Therefore, we believe that fish, wildlife, and other natural
resources on Tribal lands are better managed under Tribal authorities,
policies, and programs than through Federal regulation wherever
possible and practicable. Such designation is often viewed by Tribes as
an unwanted intrusion into Tribal self governance, thus compromising
the government-to-government relationship essential to achieving our
mutual goals of managing for healthy ecosystems upon which the
viability of threatened and endangered species populations depend.
Exclusion of Tribal lands may be warranted because Tribes are
already committed to conserving lynx. Through Federal grant programs,
the Passamaquoddy Tribe is conducting surveys and habitat models for
lynx and snowshoe hare, the Houlton Band of Maliseet Indians is
conducting lynx surveys, the Grand Portage Tribe is assessing lynx
habitat on reservation lands, and lynx habitat is protected through a
comprehensive conservation plan on the Flathead Reservation in Montana.
Information from these efforts will be used to inform management plans
or strategies to promote the conservation of lynx on Tribal lands.
Additionally, we received general comments from Tribes voicing their
commitment to ensuring that lynx remain a viable part of the ecosystem.
Benefits of Exclusion Outweigh Benefits of Inclusion
We believe that conservation of lynx can be achieved on Tribal
lands within the critical habitat units through the cooperation of
Tribes, and without designating them as critical habitat. The large
area of the lynx critical habitat designation is sufficient to conserve
the species without the addition of Tribal lands. Therefore, Tribal
lands are not essential to the conservation of the species, and Tribal
lands in Units 1, 2, and 3 have not been designated as critical habitat
pursuant to section 4(b)(2) of the Act.
In addition to the fact that Tribal lands are not essential to
lynx, the management plans and activities being implemented on Tribal
lands are likely to ensure continued conservation of lynx. Given the
importance of our government-to-government relationship with Tribes,
the benefit of maintaining our commitment to the Executive Order by
excluding these lands outweighs the benefit of including them in
critical habitat.
Exclusion of Tribal lands from the final designation of critical
habitat for the lynx will not result in the extinction of the species
because the Houlton Band
[[Page 8649]]
of Maliseet Indians, Aroostook Band of Micmac Indians, Passamaquoddy
Tribe, Penobscot Indian Nation, Grand Portage Indians, Vermillion Lake
Indians, and Flathead Indian Reservation Tribes implement programs for
the conservation of the species, and physical and biological features
essential to it, on occupied areas. Moreover, the jeopardy standard of
section 7(a)(2) of the Act and routine implementation of conservation
measures through the section 7 process also provide assurances that the
species will not go extinct. The protections afforded to the lynx under
the jeopardy standard will remain in place for the areas proposed for
exclusion from revised critical habitat.
Exclusions Under Section 4(b)(2) of the Act
The Secretary can consider the existence of conservation agreements
and other land management plans with private, State, and Tribal
entities when making decisions under section 4(b)(2) of the Act. The
Secretary may also consider voluntary partnerships and conservation
plans, and weigh the implementation and effectiveness of these against
that of designation. Consideration of relevant impacts of designation
or exclusion under section 4(b)(2) may include, but is not limited to,
any of the following factors: (1) Whether the plan provides specific
information on how it protects the species and the physical and
biological features, and whether the plan is at a geographic scope
commensurate with the species; (2) whether the plan is complete and
will be effective at conserving and protecting of the physical and
biological features; (3) whether a reasonable expectation exists that
conservation management strategies and actions will be implemented,
that those responsible for implementing the plan are capable of
achieving the objectives, that an implementation schedule exists, and
that adequate funding exists; (4) whether the plan provides assurances
that the conservation strategies and measures will be effective (i.e.,
identifies biological goals, has provisions for reporting progress, and
is of a duration sufficient to implement the plan); (5) whether the
plan has a monitoring program or adaptive management to ensure that the
conservation measures are effective; (6) the degree to which the record
supports a conclusion that a critical habitat designation would impair
the benefits of the plan; (7) the extent of public participation; (8)
NEPA compliance; (9) demonstrated track record of implementation
success; (10) level of public benefits derived from encouraging
collaborative efforts and encouraging private and local conservation
efforts; and (11) the effect designation would have on partnerships.
Our analysis of exclusions that landowners requested is included below.
Unit 1 (Maine)
Maine Healthy Forest Reserve Program
In 2003, Congress passed the Healthy Forest Restoration Act. Title
V of this Act designates a Healthy Forest Reserve Program (HFRP) with
objectives to: (1) Promote the recovery of threatened and endangered
species, (2) improve biodiversity, and (3) enhance carbon
sequestration. In 2006, Congress provided the first funding for the
HFRP, and Maine, Arkansas, and Mississippi were chosen as pilot states
to receive funding through their respective Natural Resources
Conservation Service (NRCS) State offices. NRCS and the Service
determined that the most efficient way to complete Section 7
consultations and to deliver regulatory assurances required by the HFRP
was by developing programmatic biological opinions for each of the
participating States. A programmatic biological opinion provides a
framework for determining effects of the action and quantifying
incidental take, and describes baseline conditions, the net
conservation benefit, and terms and conditions when reviewing projects
selected for future funding. Based on a successful pilot program, in
2008, the HFRP was reauthorized as part of the Farm Bill.
In 2006 and 2007, NRCS offered the HFRP to landowners in the
proposed Canada lynx critical habitat unit in Maine to promote
development of Canada lynx forest management plans. The value of such
planning to lynx recovery is identified in the Service's Canada Lynx
Recovery Outline (USFWS 2005):
Objective 1: Retain adequate habitat of sufficient quality
to support the long-term persistence of lynx populations within each of
the identified core areas and Recovery Action; and
Recovery Action 1. Establish management commitments in
core areas that will provide for adequate quality and quantity of
habitat such that there is a reasonable expectation that persistent
lynx populations can be supported in each of the core areas for at
least the next 100 years. On non-Federal lands in the core areas,
develop and implement best management practices and long-term
management agreements for lynx with key State, private, or Tribal
forest managers.
Five landowners are enrolled in the HFRP--the Passamaquoddy Tribe
(27,414 ac; 11,094 ha), The Nature Conservancy (182,086 ac; 73,688 ha),
the Forest Society of Maine as conservation easement holder for the
Merriweather LLC-West Branch Project (284,276 ac; 115,042 ha), Katahdin
Forest Products (136,550 ac; 55,260 ha), and Elliotsville Plantation
Inc. (54,327 ac; 21,985 ha). Collectively, the landowners have signed
contracts (with NRCS) committing to developing lynx forest management
plans on 684,653 ac (277,069 ha), which is 10 percent of the 6.8
million ac (2.7 million ha) of the proposed critical habitat in Maine.
Lynx maintain large home ranges; therefore, forest management plans at
large landscape scales will provide substantive recovery benefits to
lynx.
NRCS requires that lynx forest management plans must be based on
the Service's ``Canada Lynx Habitat Management Guidelines for Maine''
(McCollough 2007, entire). These guidelines were developed from the
best available science on lynx management for Maine and have been
revised as new research results became available. The guidelines
require maintenance of prescribed hare densities that have resulted in
reproducing lynx populations in Maine. The guidelines are:
1. Avoid upgrading or paving dirt or gravel roads traversing lynx
habitat. Avoid construction of new high speed/high traffic volume roads
in lynx habitat. Desired outcome: Avoid fragmenting potential lynx
habitat with high traffic/high-speed roads.
2. Maintain through time at least one lynx habitat unit of 35,000
ac (14,164 ha) (~1.5 townships) or more for every 200,000 ac (80,937
ha) (~9 townships) of ownership. At any time, about 20 percent of the
area in a lynx habitat unit should be in the optimal mid-regeneration
conditions (see Guideline 3). Desired outcome: Create a landscape that
will maintain a continuous presence of a mosaic of successional stages,
especially mid-regeneration patches that will support resident lynx.
3. Employ silvicultural methods that will create regenerating
conifer-dominated stands 12-35 ft (3.7-10.7 m) in height with high stem
density (7,000-15,000 stems/ac; 2,800-6,000 stems/ha) and horizontal
cover above the average snow depth that will support greater than 2.7
hares/ac (1.1 hares/ha). Desired outcome: Employ silvicultural
techniques that create, maintain, or prolong use of stands by high
populations of snowshoe hares.
[[Page 8650]]
4. Maintain land in forest management. Development and associated
activities should be consolidated to minimize direct and indirect
impacts. Avoid development projects that occur across large areas,
increase lynx mortality, fragment habitat, or result in barriers that
affect lynx movements and dispersal. Desired outcome: Maintain the
current amount and distribution of commercial forest land in northern
Maine. Prevent forest fragmentation and barriers to movements. Avoid
development that introduces new sources of lynx mortality.
5. Encourage coarse woody debris for den sites by maintaining
standing dead trees after harvest and leaving patches (at least .75 ac;
.30 ha) of windthrow or insect damage. Desired outcome: Retain coarse
woody debris for denning sites.
Notably, HFRP forest management plans must provide a net
conservation benefit for lynx, which will be achieved by employing the
lynx guidelines, identifying baseline habitat conditions, and meeting
NRCS standards for forest plans. Plans must meet NRCS HFRP criteria and
guidelines and comply with numerous environmental standards. NEPA
compliance will be completed for each plan. NRCS held public
informational sessions about the HFRP and advertised the availability
of funds. Plans must be reviewed and approved by NRCS with assistance
from the Service. The details of the plans are proprietary and will not
be made public per NRCS policy.
Plans must be developed for a forest rotation (70 years) and
include a decade-by-decade assessment of the location and anticipated
condition of lynx habitat on the ownership. Some landowners are
developing plans exclusively for lynx, and others are combining lynx
management (umbrella species for young forest) with pine marten
(umbrella species for mature forest) and other biodiversity objectives.
There will be broad public benefits derived from these plans, including
benefits to many species of wildlife that share habitat with the lynx.
Most landowners are writing their own plans. The Nature Conservancy,
however, contracted with the University of Maine, Department of
Wildlife Ecology to develop a lynx-pine marten plan that will serve as
a model for lynx/biodiversity forest planning, and be shared with other
northern Maine landowners.
Landowners who are enrolled with NRCS commit to a 10-year contract.
Landowners must complete their lynx forest management plans within 2
years of enrollment. The first plans will be completed in fall 2009.
The majority (50 to 60 percent) of HFRP funds are withheld until plans
are completed. By year 7, landowners must demonstrate on-the-ground
implementation of their plan. NRCS will monitor and enforce compliance
with the 10-year contracts. At the conclusion of the 10-year cost share
contract, we anticipate that Safe Harbor Agreements or other agreements
to provide regulatory assurances will be developed by all landowners as
an incentive to continue implementing the plans.
We completed a programmatic biological opinion for the HFRP in
2006, that assesses the overall effects of the program on lynx habitat
and on individual lynx, and provides the required incidental take
coverage. Separate biological opinions will be developed under this
programmatic opinion for each of the five enrollees. These tiered
opinions will document environmental baseline, net conservation
benefits, and incidental take for each landowner. If additional HFRP
funding is made available to Maine in the future, new enrollees will be
tiered under this programmatic opinion. This programmatic opinion will
be revised as new information is obtained, or if new rare, threatened,
or endangered species are considered for HFRP funding.
Commitments to the HFRP are strengthened by several other
conservation efforts. The Nature Conservancy (TNC) land enrolled in the
HFRP is also enrolled in the Forest Stewardship Council (FSC) forest
certification program, which requires safeguards for threatened and
endangered species. The Forest Society of Maine is under contract to
manage a conservation easement held by the State of Maine on the
Katahdin Forest Management lands, which is also enrolled in the HFRP.
This easement requires that threatened and endangered species be
protected and managed. The Forest Society of Maine also holds a
conservation easement on the Merriweather LLC--West Branch property,
which contains requirements that threatened and endangered species be
protected and managed. These lands are also certified under the
Sustainable Forestry Initiative (SFI) and FSC, which require that there
be programs for threatened and endangered species. The Eliotsville
Plantation, Inc. lands enrolled in the HFRP are held in a trust, which
specifies the lands preserve wildlife species. The Passamaquoddy
enrolled lands are managed as trust lands by the Bureau of Indian
Affairs, and projects occurring on those lands are subject to NEPA
review and section 7 consultation.
Benefits of Inclusion
The primary benefit of including an area within a critical habitat
designation is the protection provided by section 7(a)(2) of the Act,
which directs Federal agencies to ensure that actions they authorize,
fund, or carry out are not likely to jeopardize the continued existence
of a threatened or endangered species and do not result in the
destruction or adverse modification of critical habitat. Consultation
has already occurred on these lands, and it included consideration of
lynx habitat. The regulatory benefit of designating critical habitat on
the HFRP lands would be minimal because there are few Federal actions
to trigger the consultation provisions under section 7(a)(2) of the
Act. Forestry activities are exempt from the Clean Water Act, and few
landowners in Maine obtain Federal funding for projects on their lands.
Since the lynx was listed in 2000, there have been two formal
consultations on lynx in Maine (the HFRP biological opinion and a
highway project) and about 73 informal consultations; however, there
have been no consultations on Federal actions on The Nature
Conservancy, West Branch Project, Elliotsville Plantation, Inc., and
Katahdin Forest Management lands. The Passamaquoddy Tribe, through the
Bureau of Indian Affairs, has informally consulted with the Service on
four timber sales during this time period, resulting in determinations
that the projects were not likely to adversely affect lynx because the
harvests would create early successional habitat beneficial to lynx.
Consultations in northern Maine have been mostly on small Federal
actions (less than 15 ac; 6 ha) that have few consequences to lynx,
which require large landscapes of 35,000 ac (14,164 ha) or more;
therefore, the results of these informal consultations were that the
projects would have no effect on lynx or would not likely adversely
affect lynx.
A potential benefit of critical habitat designation would be to
signal the importance of these lands to Federal agencies, scientific
organizations, State and local governments, and the public to encourage
conservation efforts to benefit the lynx and its habitat. By
publication of the proposed rule, we are educating the public of the
location of core lynx habitat and areas most important for the recovery
of this species. In addition, designation of critical habitat on HFRP
enrollee lands could provide some educational benefit through the
rulemaking process.
[[Page 8651]]
Benefits of Exclusion
A Federal nexus on HFRP lands is rare, and development is unlikely
because conservation easements exist on many of these lands. Section
7(a)(2) review will not provide benefits to the physical and biological
features essential to the conservation of lynx, because most Federal
projects in northern Maine are small and will not benefit habitat at a
geographic scale meaningful for lynx conservation. Therefore, the
regulatory protection provided through the section 7(a)(2) process for
critical habitat would minimal. The HFRP goes beyond the standard of
adverse modification to provide a net conservation benefit. The
conservation measures for the lynx included in the HFRP plans are
affirmative obligations that address the physical and biological
features, represent the best available science, and provide a net
conservation benefit to the species by ensuring the quality and
quantity of unfragmented lynx habitat on the landscape.
Excluding these 684,653 acres of HFRP lands from critical habitat
designation would help strengthen partnerships and promote other
aspects of recovery for the lynx. Since the lynx was listed in 2000, it
has been difficult for us to effectively address lynx conservation
across the forest landscape in northern Maine because of the numerous
private industrial forest landowners with whom coordination is
required. HFRP contracts will contribute to the conservation of the
physical and biological features essential to the conservation of the
lynx in approximately 10 percent of the proposed critical habitat unit.
Proactively developing conservation programs for lynx across large
ownerships can be a more effective recovery strategy than project-by-
project planning in a landscape where a section 7 is rarely applicable.
Lynx require large home ranges, and lynx and snowshoe hare habitat
occurs in a habitat mosaic across the landscape that changes with time
and space as the forests age or disturbances occur (e.g., insect
outbreaks or timber management). The HFRP plans address landscape-level
planning and actions for forestry-related activities within the context
of lynx-specific guidelines, which can facilitate lynx recovery. The
HFRP contracts operate under a programmatic biological opinion under
section 7(a)(2), enabling a coordinated, multi-landowner approach to
lynx conservation on private lands.
HFRP contracts build on the ongoing partnership between the
Service, Maine Department of Inland Fisheries and Wildlife, and the
HFRP enrollees. The contracts provide assurances to the Service that
individual landowners will address the habitat requirements of lynx and
facilitate the consideration and implementation of lynx conservation
needs at a broad landscape scale. Although the HFRP contracts are for
10 years, lynx plans are required to address forest management for the
next 70 years. Several incentives encourage enrollees to continue their
plans after the conclusion of the 10-year contract:
Enrollees will be offered Safe Harbor Agreements or other
mechanisms to extend incidental take coverage and regulatory assurances
beyond the 10 year period. Most of the enrollees are in forest
certification programs and have conservation easements.
HFRP plans meet the requirements of certification programs
and easement requirements to document how they will manage for
federally listed species.
Future HFRP funding may be available to promote continued
management on these lands.
Landowners may be reimbursed at a graduated rate of up to
100 percent for land put under conservation easements of 30-year and
99-year duration.
Most HFRP enrollees have a long track record of conservation in
Maine. The Nature Conservancy has been working with us and other
conservation partners since the 1970s. The Forest Society of Maine is a
conservation easement holder in northern Maine, and has been working
with us since the late 1990s. We have a long partnership with the
Passamaquoddy Tribe that includes consulting on Tribal silvicultural
projects, cooperative research, review of forest management plans, and
implementation of Service conservation recommendations. Many of the
HFRP enrollees contribute as members to the University of Maine
Cooperative Forest Research Unit (CFRU). The CFRU has funded numerous
lynx and snowshoe hare studies that have advanced our understanding of
lynx population dynamics and habitat relationships. Landowners have
facilitated research and surveys by allowing access to their lands and
logistical support. The positive experiences from HFRP enrollment will
promote continued support for funding and continued lynx research.
Some of the enrolled lands could be sold, and it may be argued that
new owners may not participate in long-term lynx management. However,
new landowners could benefit from the incidental take coverage offered
by HFRP or future Safe Harbor Agreements as a result of HFRP plans.
Lands under conservation easements would require planning for federally
listed species, and new landowners would have an incentive to continue
to implement plans to meet their easement requirements. Many of the
owners have SFI or FSC certifications, which have similar requirements
for State and federally listed species planning. Therefore, substantial
incentives exist for a new landowner to honor existing lynx management
plans.
Some landowners do not trust that the regulatory effect of critical
habitat designation is limited, and they do not want an additional
layer of Federal regulation on their private property. They are
concerned that additional State regulations or local restrictions may
be imposed as a result of the designation of critical habitat. HFRP
enrollees are some of the largest landowners in Maine. We need the
cooperation and partnership of these landowners to achieve recovery of
lynx in Maine. If designation causes their alienation, it would be
counterproductive to designate on their lands.
Benefits of Exclusion Outweigh Benefits of Inclusion
We believe there would be minimal benefit in designating lands
enrolled in the HFRP as critical habitat for the lynx within Unit 1. We
evaluated the proposed exclusion of approximately 684,653 ac (277,069
ha) of lands enrolled in the HFRP. Inclusion of these lands would
result in few benefits; minimal consultation under section 7, and
minimal education related to lynx conservation would be realized.
The HFRP lynx management plans will be effective and directly
address the physical and biological features essential to lynx by
incorporating the Service's lynx conservation guidelines. These
conservation actions and management for the lynx and the physical and
biological features essential to it within large landscapes exceed any
conservation value provided as a result of regulatory protections that
have been or may be afforded through critical habitat designation. The
exclusion of these lands from critical habitat will help preserve
partnerships developed with the landowners. Most of the HFRP enrollees
have a demonstrated track record of working with the Service and
helping to fund lynx research. The HFRP plans will have a high
probability of implementation due to the 10-year contract with NRCS and
significant incentives (e.g., Safe Harbor, requirements of forest
certification and conservation easements, continued funding and
possibly additional funds),
[[Page 8652]]
and could continue for a 70-year period. Funding is assured because
development of lynx forest management plans and initial implementation
is being paid for by NRCS. HFRP plans provide a high degree of public
benefit for lynx and other wildlife that share their habitat.
The benefits of excluding HFRP lands from critical habitat outweigh
the benefits of retaining these lands as critical habitat. Educational
benefits can be realized by designation of critical habitat
designation, which informs the public via the rulemaking process.
However, education has already been realized through the HFRP. The best
scientific information regarding the long-term conservation of lynx is
being used and shared with landowners to assist in the development of
their plans. We participate in the delivery of this information. We
will continue to review Federal actions under Section 7(a)(2) of the
Act, although the only likely Federal action we foresee on the lands
enrolled in HFRP will be on the consultation required for development
of the individual plans. A programmatic biological opinion has already
been prepared and it addresses lynx habitat in detail.
The HFRP provides an opportunity for us to work in partnership with
five landowners across several landscape scales and ownerships. The
HFRP demonstrates that our lynx management guidelines are a flexible,
outcome-based approach to addressing lynx recovery in northern Maine
that can be adapted to a variety of landowner types and landscapes. The
HFRP lynx forest management plans will employ state-of-the-art habitat
mapping, apply the best available science, and have a high likelihood
of being carried out. We believe that the benefits of excluding HFRP
enrollee lands outweigh the benefits of inclusion, particularly because
these landowners have committed to developing long-term lynx habitat
plans and on-the-ground management affecting large landscapes.
Exclusion Will Not Result in Extinction of the Species
Exclusion of 684,653 ac (277,069 ha) from Unit 1 of this revised
critical habitat designation will not result in the extinction of the
species, because the HFRP plans provide for the conservation of the
species and the physical and biological features essential to it. The
jeopardy standard of section 7(a)(2) of the Act and routine
implementation of conservation measures through the section 7 process
also provide assurances that the species will not go extinct. The
protections afforded the lynx under the jeopardy standard will remain
in place for the areas excluded from revised critical habitat.
Maine Forest Products Council Conservation Partnership Agreement
The Maine Forest Products Council (MFPC) is a trade organization
representing the Maine forest products community, whose 350-member
companies include landowners, loggers, truckers, paper mills, and
lumber processors. The MFPC advises its members on Federal and State
regulatory issues. The 28 MFPC private commercial forest landowners in
the area of critical habitat own 74 percent of the lands proposed for
lynx critical designation in Maine. Other participants in the
partnership include Maine Department of Inland Fisheries and Wildlife
(MDIFW) and the Service. Beginning with our first proposal to designate
critical habitat for lynx in 2006, MFPC submitted draft conservation
agreements with the intent to document its members' ongoing partnership
with wildlife agencies responsible for lynx management and
conservation.
We assessed the benefits of inclusion and the benefits of exclusion
of MFPC members' lands, based on the most recently submitted draft
conservation agreement, and determined that these lands do not meet our
criteria for exclusion from critical habitat. Our analysis follows
below.
The MFPC and its landowner members have supported lynx recovery by
allowing researchers from MDIFW, the Service, and the University of
Maine (UMaine) access to their private property to conduct lynx surveys
and research, and by providing logistical assistance (e.g., lodging,
field maps) to the lynx researchers. Thirteen of the 28 landowners are
contributing members to UMaine's Cooperative Forestry Research Unit
(CFRU). Since 2000, the CFRU members have contributed more than
$515,000 to support 9 research projects assessing the effects of forest
management on snowshoe hares and Canada lynx. We have supported many of
these projects, which form a large part of the scientific basis for
lynx recovery in Maine. This partnership reinforces MFPC member funding
and support for continued lynx research through CFRU.
Under a draft partnership agreement, the MFPC would encourage
funding for the UMaine CFRU to complete landscape-level lynx habitat
mapping across MFPC member lands using satellite imagery and state-of-
the art lynx and hare habitat models developed by UMaine. MFPC would
also encourage funding for updates to the habitat maps, and members
would assist with verification of the mapping product. At this time,
high-quality maps of lynx habitat across mixed ownerships do not exist.
Mapping of this quality would enable landscape-level habitat analyses
and planning for lynx, snowshoe hare and many other species. Mapping
would document the shifting mosaic of habitat, guide opportunities for
management, and project future habitat conditions under different
silvicultural scenarios.
The Draft MFPC Agreement would enable the MFPC, MDIFW and the
Service to collaboratively develop multi-species landscape-scale
planning guidelines that would assist in the development of management
recommendations for lynx in relation to other wildlife species. MFPC
participation is important to ensure that guidelines are acceptable to
forest industries. These guidelines would be a useful resource for the
land managers to inform their management decisions for the conservation
of lynx and other wildlife.
The Draft MFPC Agreement would provide educational benefits by
establishing mechanisms to broaden the understanding of lynx habitat
management and disseminating the best available scientific information
on lynx throughout all levels of the forest products industry. Existing
training programs for foresters, loggers, and land managers would be
expanded to include lynx education components. Web sites, newsletters,
professional meetings and forums would provide information on lynx
research and management. The Draft MFPC Agreement would document a
management process to review research results and facilitate
dissemination of results to Maine's forest managers. The Draft MFPC
Agreement would create an annual lynx conservation workshop and
experimental testing of silvicultural techniques. An annual report
would be provided to all partners summarizing lynx conservation
activities and achievements. This form of education and training is
anticipated to result in a substantial improvement in the understanding
of lynx habitat requirements among members of the forest products
industry. Education is generally considered a benefit of designating
critical habitat in that it educates the public and others about the
potential conservation value of an area.
The Draft MFPC Agreement could help achieve lynx recovery, as
identified in the Service's Canada Lynx Recovery Outline (USFWS 2005);
however,
[[Page 8653]]
actions not made mandatory in the Draft Agreement would have to be
completed to realize some of the conservation benefits identified in
the Recovery Outline, which include:
Objective 1: Retain adequate habitat of sufficient quality
to support the long-term persistence of lynx populations within each of
the identified core areas and Recovery Action, and
Recovery Action 1. Establish management commitments in
core areas that will provide for adequate quality and quantity of
habitat such that there is a reasonable expectation that persistent
lynx populations can be supported in each of the core areas for at
least the next 100 years. On non-Federal lands in the core areas,
develop and implement best management practices and long-term
management agreements for lynx with key State, private, or Tribal
forest managers.
Recovery Action 2. Maintain baseline inventories of lynx
habitat in each core area, monitoring changes in structure and the
distribution of habitat components.
Recovery Action 4. Identify habitat facilitating movement
between each core area and lynx populations in Canada.
Recovery Action 6. Identify population and habitat
limiting factors for lynx in the contiguous United States. Continue and
complete studies necessary to gather basic information on the
ecological requirements, distribution, population size, and trends in
each of the core areas and as possible for secondary areas. Identify
the risk to lynx populations posed by forest management techniques and
human induced mortality from factors such as roads, trapping, and
hunting. Address these factors as necessary to ensure the long-term
persistence of lynx populations in core areas.
Under the Draft MFPC Agreement, the parties would work
collaboratively to improve lynx habitat management on industrial forest
lands based on scientific research. Such measures might include
development of landscape-scale habitat maps; experiments to evaluate
the feasibility, practicality, and effectiveness of research
recommendations; and development of multi-species landscape-scale
planning guidelines. The Draft Agreement does not prescribe measures,
however, for directly managing or protecting the physical and
biological features essential to the conservation of lynx. The MFPC
would work to support the implementation of management measures based
on research if recommendations are operationally feasible, economically
viable, and biologically meaningful.
Benefits of Inclusion
The primary benefit of including the area addressed by the Draft
MFPC Agreement within a critical habitat designation is the protection
provided by section 7(a)(2) of the Act, which directs Federal agencies
to ensure that actions they authorize, fund, or carry out are not
likely to jeopardize the continued existence of a threatened or
endangered species, and do not result in the destruction or adverse
modification of critical habitat. The regulatory benefit of designating
critical habitat in Maine is currently low, because few Federal actions
trigger the consultation provisions under section 7(a)(2) of the Act.
Forestry activities are exempt from the Clean Water Act, and few
industrial forest landowners engage in activities that involve Federal
funding or authorization. Since the lynx was listed in 2000, there have
been two formal consultations on lynx in Maine (the HFRP biological
opinion and a highway project) and about 73 informal consultations.
Consultations in northern Maine have been mostly on small Federal
actions (less than 15 ac; 6 ha) that have few consequences to lynx,
which require large landscapes of 35,000 ac (14,164 ha) or more;
therefore, the results of these informal consultations were that the
project would have no effect on lynx or would not likely adversely
affect lynx.
At this time, we are aware of two proposals that may affect large
landscapes on MFPC member lands and will trigger consultation under
section 7(a)(2). In 2008, we initiated consultation with the Army Corps
of Engineers on a large wind power project. In 2007, we provided
comments as requested by the Maine Land Use Regulation Commission on a
large-scale development project that would occur on a MFPC member's
land in Unit 1--Plum Creek's Moosehead Concept Plan. This project
included a request for a zoning change to allow development of
approximately 1,000 house lots, 2 large resorts, and possibly wind
power projects on up to 2,023 ha (5,000 ac) in critical habitat Unit 1.
As mitigation, Plum Creek is offering a combination of fee title sale
and a conservation easement on 174,015 ha (430,000 ac) of undeveloped
lands. The easement would require that threatened and endangered
species conservation be addressed as part of Plum Creek's Sustainable
Forestry Initiative certification program. Aspects of wildlife and
special areas management would be overseen by a Management Advisory
Team, which would include representation from the Service. If the
concept plan is approved by the State, projects requiring Federal
permitting would likely be initiated within several years. We would
review the Plum Creek projects under the concept plan through Section 7
consultation with Army Corps of Engineers or other Federal permits or
funding.
Federal actions have occurred on MFPC lands, and because of this,
it is possible that section 7 consultations will occur in the future.
Although a Federal nexus on projects in this area is rare, designation
of critical habitat could provide a conservation benefit for lynx
habitat.
A potential benefit of critical habitat designation would be to
signal the importance of designated lands to Federal agencies,
scientific organizations, State and local governments, and the public
to encourage conservation efforts to benefit the lynx and its habitat.
Critical habitat designation educates the public about the location of
core lynx habitat and areas most important for the recovery of this
species.
The Draft MFPC Agreement could encourage members to support a 5-
year position at UMaine and CFRU (about $50,000 annually). The person
in this position would help complete habitat mapping, which would
require $300,000 to $500,000 of additional funds. This person would
also coordinate the outreach and research specified in the Draft
Agreement. However, this funding is not assured. CFRU dues paid by
member landowners are needed to support the research commitments of the
Draft MFPC Agreement, and not all MFPC members within critical habitat
Unit 1 are contributing members of the CFRU. Plum Creek is the only
MFPC member to potentially pledge funds ($6,000 annually for the next 5
years). None of the other MFPC member companies have made funding
commitments. No certainty exists for implementation of important
aspects of the Draft MFPC Agreement.
The Draft Agreement does not require specific land management
actions to be taken by landowners. The MFPC landowners each manage
their properties differently, and own different amounts of property in
different stand conditions. The MFPC is an umbrella organization with
no authority over its members, and can only encourage its members to
voluntarily act to meet the guidelines in the Draft Agreement.
Individual landowners would not be actual parties to the agreement. No
commitment would be made through
[[Page 8654]]
the agreement to allow the Service access to member lands in order to
monitor lynx or effects of management on lynx, and existing easements
that MFPC relies on were not provided for review during this analysis.
All of these factors indicate that benefits to lynx by excluding these
lands are very speculative.
We compared the HFRP, which we found met our criteria for exclusion
under section 4(b)(2), with the MFPC Draft Agreement, which we found
did not meet our criteria for exclusion. For instance, both
conservation vehicles adopt a 10-year timeframe for required contracts;
however contracts under the HFRP are binding and ramifications for
breach exist, and the MFPC Agreement is voluntary with no consequences
for termination, which could happen at any time. Additionally, the HFRP
contemplates conversion of the 10-year contract to an easement, as
discussed earlier. Participants in HFRP, like many MFPC members, are
enrolled in forest certification programs. We find that participation
in the certification programs demonstrates some commitment to
responsible resource management; however, we were not provided with
endangered species or lynx management plans, which are required under
forest certification programs, to review. We could not evaluate the
efficacy of the programs or potential benefits to the lynx or its
habitat. The HRFP commitment is that contractually-bound parties will
likely meet their obligations to provide lynx management plans. Because
neither the MFPC, nor its Draft Agreement commit or bind its members in
any manner, participation in a certification program, though laudable,
is less relevant for our evaluation.
Benefits of Exclusion
The Draft MFPC Agreement would commit partners to monitoring lynx
habitat, contributing to lynx research, developing lynx management
guidelines, promoting education, and conducting outreach across the
lands of 28 corporate forest landowners. These commitments would
strengthen partnerships and promote other aspects of recovery for the
lynx. The Draft Agreement would have a duration of 10 years (extendable
in 5-year increments); however, it would allow for unilateral
termination. MFPC would prepare an annual report summarizing the
actions taken to implement the agreement.
Since the lynx was listed in 2000, it has been difficult for us to
effectively address lynx conservation across the forest landscape in
northern Maine because of the numerous private industrial forest
landowners with whom coordination is required. It is important to
proactively develop conservation programs for lynx across large
landscapes. Lynx require large home ranges, and lynx and snowshoe hare
habitat occurs in a habitat mosaic across the landscape that changes
over time and space as the forests ages or disturbances occur to forest
stands (e.g., insect outbreaks or timber management). Conservation
easements (that restrict development) exist on approximately 809,374 ha
(2,000,000 ac) in the area covered by the Draft MFPC Agreement. Some of
the landowners have requirements to manage for federally listed species
under forest certification programs.
The Draft MFPC Agreement covers 2,036,378 ha (5,032,000 ac), 74
percent of critical habitat Unit 1--an area larger than the State of
New Jersey. The Draft Agreement could enable a coordinated, multi-
landowner approach to lynx conservation on these private lands. This
opportunity would not occur under typical consultation scenarios. The
Draft Agreement would provide an opportunity to engage nearly all of
the large private landowners in a dialogue concerning the recovery
needs of the lynx. The Draft MFPC Agreement could facilitate the
consideration of voluntary lynx conservation actions at a landscape
scale across land ownership boundaries.
The conservation measures for lynx included in the Draft MFPC
Agreement would support research needed to understand the effects of
forest management in Maine on the physical and biological features
essential to the conservation of lynx, provide a means to assess and
monitor habitat, and provide an opportunity to develop management
strategies for lynx and other wildlife species.
The Draft MFPC Agreement could build on the ongoing partnership
between the Service, MDIFW, UMaine, CFRU and other partners. The Draft
MFPC Agreement would be in place for 10 years, but could be renewed.
Several incentives, for MFPC landowners to maintain this partnership
for a longer period of time, include:
The Service (at considerable cost) could designate
critical habitat if landowners did not live up to the terms of the
Agreement or if the physical and biological features essential to lynx
began to diminish.
Some landowners cite the Draft MFPC Agreement as part of
their lynx conservation program in order to meet the requirements of
certification programs and easement requirements for managing for
Federally listed species.
Funding (e.g., HFRP) may be available as an incentive to
promote development of individual lynx forest management plans.
Some MFPC landowners have a track record of partnership with State
and Federal conservation agencies in Maine. About half of the 28
landowners contribute as members to the CFRU. MFPC landowners have
enabled this research by allowing access to their lands and logistical
support; access is crucial and could be terminated by landowners if
critical habitat is designated on their lands. This Draft Agreement
could reinforce the continued support of MFPC landowners for funding
and continued lynx research through CFRU.
Forest management on MFPC lands must meet the requirements of the
Maine Forest Practices Act. This Act has resulted in the forest
products industry changing to forestry methods (e.g., partial
harvesting) that may be detrimental to creation of habitats that
support high snowshoe hare densities. We are working with landowners
and the Maine Forest Service to discuss the problems of the Maine
Forest Practices Act and to encourage conservation measures that will
benefit lynx.
Some landowners do not trust that the regulatory effect of critical
habitat designation is limited, and they do not want an additional
layer of Federal regulation on their private property. They are
concerned that additional State regulations or local restrictions may
be imposed as a result of the designation of critical habitat. MFPC
landowners manage the largest forest acreage in Maine; several own more
than 404,686 ha (1 million ac). Maintaining the cooperation of these
landowners would be helpful in achieving recovery of lynx in Maine. The
MFPC has indicated that they will not provide many of the benefits
described in their Draft Agreement if critical habitat is designated on
their members' lands.
As discussed in more detail in our final economic analysis, Plum
Creek submitted a public comment indicating that they will likely
abandon the Moosehead Concept Plan if critical habitat is designated in
Maine. A report submitted with Plum Creek's public comments describes
the economic impacts to the public and to Plum Creek in terms of
potential economic benefits lost if the project is abandoned. In their
public comment, Plum Creek summarized the economic impacts that would
result from abandoning the Concept Plan (see page 5-19 of the final
economic analysis). Plum Creek stated that a recent report valued lands
in the Concept Plan at $189.6 million to Plum
[[Page 8655]]
Creek. Conservation easements were valued at $469,000 in benefits for
the local residents and $9.2 million in benefits for Maine residents.
In total, public benefits of the balance easement were quantified at
between $10.8 and $19.2 million. Our final economic analysis does not
sum Plum Creek's estimated impacts with the incremental impacts of
critical habitat designation because the 2007 conservation
recommendations from LURC and the Service with regard to the Moosehead
Concept Plan are unlikely to be affected by the designation of critical
habitat, there is uncertainty regarding whether these costs will be
realized, and there may also be economic benefits of not going forward
with the Moosehead Concept Plan that offset the cost estimates
presented by Plum Creek. If Plum Creek abandons the Concept Plan, the
alternative uses of the land are largely uncertain, and we, therefore,
have not predicted what sorts of economic costs and benefits would be
associated with those uses. The final economic analysis estimates the
potential post-designation baseline economic impacts of lynx
conservation efforts in Unit 1 to range from $8.6 to $9.5 million at a
7 percent discount rate on an annualized basis.
Benefits of Inclusion Outweigh Benefits of Exclusion
We find that the benefits of including MFPC lands in the
designation outweigh the potential benefits of exclusion. Despite the
lynx conservation benefits that might arise from the partnerships that
could be built or strengthened through the Draft MFPC Agreement, it
provides no commitment to implement on-the-ground habitat management to
conserve the physical and biological features essential to the
conservation of lynx, nor is there certainty that funding will be
committed for research and landscape-level lynx habitat mapping across
MFPC member lands.
Section 7(a)(2) consultation on future, unforeseen projects within
MFPC member lands, that are authorized, funded, carried out by Federal
agencies, might result in a determination that the action will result
in the destruction or adverse modification of lynx critical habitat.
Overall, the MFPC Agreement is a draft document that lacks funding,
does not identify funding necessary to complete commitments (such as
research projects), lacks concrete management measures, and only
commits to voluntary actions. While we recognize that there is great
partnership potential promised through this Draft Agreement, we find
that excluding 74 percent of a critical habitat unit based on this
potential does not meet our criteria for exclusion.
Although potential economic impacts associated with the Moosehead
Concept Plan have been provided to us by Plum Creek, based on our final
economic analysis and because of the uncertainty regarding whether Plum
Creek will abandon the project and what economic costs and benefits
would be associated with alternative uses of the land, we do not
believe that this final designation will result in any substantial and
disproportionate economic impacts. The Secretary is not excluding MFPC
lands from critical habitat based on economic impacts.
We recognize that designating MFPC member lands as critical habitat
may weaken existing partnerships between the Service and MFPC and its
member landowners; however, we will continue to work with private
landowners to further lynx conservation.
Unit 3 (Northern Rockies--Montana and Idaho)
Montana Partnership Conservation Agreement
Subsequent to publication of the proposed rule, a consortium of
private lands timber companies partnered to develop the Montana
Partnership Conservation Agreement (MPCA). Partners to the agreement
include F.H. Stoltze Land and Timber Company, Plum Creek Timber
Company, Inc., and Stimson Lumber Company, Inc. The finalized agreement
would be signed only if private lands in Montana were not included in
the lynx critical habitat designation, and would affect lands in
critical habitat Units 3 and 5.
We assessed the benefits of inclusion and the benefits of exclusion
of these lands, and determined that these lands do not meet our
criteria for exclusion from critical habitat. Our analysis follows
below.
The landowners involved in the MPCA have supported lynx recovery by
allowing researchers from USFS, Rocky Mountain Research Station,
University of Montana, and others access to their private property to
conduct lynx surveys and research and by providing logistical
assistance (e.g., lodging, field maps) to lynx researchers. Plum Creek
Timber Company has supported lynx research by donating funds to
specific projects. We supported many of these projects, which form a
large part of the scientific basis for lynx recovery in the mountain
west. The Draft MPCA Agreement would reinforce MPCA funding and support
for continued lynx research. There is no assurance that MPCA funding
and logistical support for lynx and snowshoe hare research will
continue if critical habitat is designated on MPCA member lands.
The Draft MPCA Agreement calls for member landowners and the
Service to collaboratively develop habitat management best management
practices that would assist in the development of management
recommendations for lynx in relation to other wildlife species. As the
land managers, MPCA participation is important to ensure that
guidelines will be accepted. These guidelines would be a useful
resource to inform management decisions for the conservation of lynx
and other wildlife.
The Draft MPCA Agreement documents a management process for
reviewing research results and facilitating dissemination of results to
Montana's private forest managers. The Draft Agreement includes
creation of an annual lynx conservation workshop during which
information exchange would occur between MPCA landowners, the Service,
and other industrial and small-lot forest owners and forest products
producers. An annual report would be provided to all partners
summarizing lynx conservation activities and achievements.
The Draft Agreement would provide educational benefits by
establishing mechanisms to broaden the understanding of lynx habitat
management and disseminating the best available scientific information
on lynx throughout all levels of the forest products industry. Existing
training programs for foresters, loggers, and land managers would be
expanded to include lynx education components. Web sites, newsletters,
professional meetings and forums would provide information on lynx
research and management. The MPCA signatories would coordinate an
annual lynx workshop to discuss research results and identify actions
that may contribute to the conservation of lynx habitat while
preserving Montana's working forest; the workshop would serve to inform
the Service on changes in the industry and landowner forest management
practice trends. This form of education and training could result in an
improved understanding of lynx habitat requirements among members of
the forest products industry.
Under the Draft Agreement, participating parties would work
collaboratively to improve lynx habitat management on industrial forest
lands based on sound science and education of forest managers and
others. Such measures might include development of landscape-scale
habitat maps; experiments to evaluate the feasibility,
[[Page 8656]]
practicality, and effectiveness of research recommendations; and
development of habitat management guidelines. However, the Draft
Agreement would not prescribe measures for directly managing or
protecting the physical and biological features essential to the
conservation of lynx. The MPCA would support the implementation of
management measures based on research if recommendations are
operationally feasible, economically viable, and biologically
meaningful.
The Draft Agreement would commit participating parties for at least
10 years (extendable in 5-year increments). The landowner signatories
would prepare an annual report summarizing the actions taken to
implement the agreement.
Benefits of Inclusion
The primary benefit of including an area within a critical habitat
designation is the protection provided by section 7(a)(2) of the Act,
which directs Federal agencies to ensure that actions they authorize,
fund, or carry out are not likely to jeopardize the continued existence
of a threatened or endangered species and do not result in the
destruction or adverse modification of critical habitat. The regulatory
benefit of designating critical habitat on lands subject to the Draft
MPCA Agreement in Montana is currently low, because few Federal actions
trigger the consultation provisions under section 7(a)(2) of the Act.
Since the lynx was listed in 2000, there has been one formal
consultation on lynx on private lands in Montana. This formal opinion
covered activities under the USDA Natural Resources and Conservation
Service's Forest Stand Improvement Practices program. Under this
programmatic formal consultation, five second-tier site-specific
consultations have occurred. In addition, approximately two informal
consultations occurred in Montana for private lands activities,
involving road access requests across USFS lands to private lands.
Federal actions have occurred on MPCA lands, and because of this,
it is possible that section 7 consultations will occur in the future.
Although a Federal nexus on projects in this area is rare, designation
of critical habitat could provide a conservation benefit for lynx
habitat.
A potential benefit of critical habitat designation would be to
signal the importance of designated lands to Federal agencies,
scientific organizations, State and local governments, and the public
to encourage conservation efforts to benefit the Canada lynx and its
habitat.
The Draft Agreement would not require specific land management
actions to be taken by landowners. The MPCA landowners each manage
their properties differently and own different amounts of property in
different stand conditions. The MPCA can only serve as a vehicle to
promote partnerships and educate forest owners so that they may
voluntarily act to fulfill the conservation objective of the Draft
Agreement. Individual MPCA landowners' land management decisions or
activities to fulfill the Agreement are voluntary. No commitment would
be made through the agreement to allow Service access to member lands
in order to monitor lynx or effects of management on lynx. All of these
factors indicate that benefits to lynx by excluding these lands are
very speculative.
Benefits of Exclusion
The Draft MPCA Agreement would commit partners to developing
voluntary lynx management guidelines and conducting education and
outreach across private timberlands in Montana. These commitments would
strengthen partnerships in lynx recovery and could result in better
management of the physical and biological features essential to lynx.
The Draft Agreement would enable a coordinated approach to
landowner education and conservation. This opportunity might not occur
under section 7 consultation. The Draft Agreement would provide an
opportunity to engage several large private landowners and many small
wood products companies in a dialogue concerning the recovery needs of
the lynx. The Draft Agreement could facilitate the consideration of
voluntary lynx conservation actions at a landscape scale across land
ownership boundaries.
The MPCA signatory landowners are the three largest landowners in
the critical habitat Units 3 and 5 in Montana, and collectively own
approximately 35 percent of the critical habitat area in Montana.
Designating critical habitat might provide additional protection for
lynx, because some actions are known to trigger consultation through
the Section 7(a)(2) process. The actions included in the Draft
Agreement provide an opportunity to develop management strategies for
lynx.
One MPCA landowner (Plum Creek) has a long track record of
partnership with State and Federal conservation agencies in Montana.
The Draft Agreement would reinforce MPCA landowners' continued support
for funding and continued lynx research.
Some Montana forest landowners have a negative perception of
critical habitat, and believe that designating critical habitat on
their lands would result in negative consequences to them. They do not
want an additional layer of Federal regulation over their private
property. They are concerned that additional state regulations or other
local restrictions may be imposed as a result of the designation of
critical habitat. Designation on MPCA lands could make working
cooperatively or effectively on lynx conservation with landowners more
difficult. If MFPC members' lands are designated, the Draft Agreement
would not be implemented and commitments to education and lynx
guidelines would be no longer be offered.
Plum Creek Timber Company and F.H. Stoltze Land and Lumber Company
submitted public comments containing their own economic analysis of
critical habitat designation for the lynx (see pages 5-26 of our final
economic analysis for more details). Although the economic analyses
provide valuable information on potential development impacts in Unit
3, they cannot be incorporated into our final economic analysis because
their assumptions differ from those applied in our analysis. Stoltze's
economic analysis estimates the lost development option value on its
land, assuming that critical habitat designation would preclude future
development, to be $120 million. Plum Creek's economic analysis
estimates that the greatest impact of critical habitat designation will
be a reduced ability to develop their lands in the future. Assuming
that Plum Creek would sell its land over a 20-year period, it estimates
the total value at risk associated with the designation of critical
habitat to be approximately $138 million (discounted at 7 percent).
Plum Creek also submitted technical comments providing information on
the locations and extent of Plum Creek land holdings and anticipated
development projects within Unit 3. Although there may be increased
regulatory stringency in certain Montana Counties as a result of
critical habitat designation, the locations, size, and value of future
development proposals is uncertain, as is the frequency with which they
will occur in future years. Absent additional information on the
specific land use restrictions that may be imposed, the cost of those
restrictions, and their relation to lynx conservation, no impacts to
development activities are quantified for Unit 3.
[[Page 8657]]
Benefits of Inclusion Outweigh Benefits of Exclusion
We find that the benefits of including MPCA lands in the
designation outweigh the potential benefits of exclusion. Despite the
lynx conservation benefits that might arise from the partnerships that
could be built or strengthened through the Draft MPCA Agreement, it
provides no commitment to implement on-the-ground habitat management to
conserve the physical and biological features essential to the
conservation of lynx, nor is there certainty that funding will be
committed for research and landscape-level lynx habitat mapping across
MPCA member lands.
Section 7(a)(2) consultation on future, unforeseen projects within
MPCA member lands, that are authorized, funded or carried out by
Federal agencies, might result in a determination that the action will
result in the destruction or adverse modification of lynx critical
habitat.
Overall, the MPCA Agreement is a draft document that lacks funding,
does not identify funding necessary to complete commitments (such as
research projects), lacks concrete management measures, and only
commits to voluntary actions. While we recognize that there is great
partnership potential promised through this Draft Agreement, we find
that excluding a significant portion (33 percent) of one critical
habitat unit (and a small portion of another) based on this potential
does not meet our criteria for exclusion.
Although potential economic impacts associated with lands owned by
Plum Creek and Stoltze have been provided, based on our final economic
analysis and because of the uncertainty regarding the specific land use
restrictions that may be imposed, the cost of those restrictions, and
their relation to lynx conservation, we do not believe that this final
designation will result in any substantial and disproportionate
economic impacts. The Secretary is not excluding MPCA lands from
critical habitat based on economic impacts.
We recognize that designating MPCA member lands as critical habitat
may weaken existing partnerships between the Service and MPCA and its
member landowners; however, we will continue to work with private
landowners to further lynx conservation.
Unit 4 (North Cascades--Washington)
Washington Department of Natural Resources Lynx Habitat Management Plan
for DNR-Managed Lands
The Washington Department of Natural Resources Lynx Habitat
Management Plan for DNR-managed Lands (WDNR LHMP) encompasses 126,212
ac (197 mi\2\) (51,076 ha/511 km\2\) of WDNR-managed lands distributed
throughout north-central and northeastern Washington in areas
delineated as Lynx Management Zones in the Washington State Recovery
Lynx Plan (Stinson 2001, p. 39; WDNR 2006, pp. 5-13). The WDNR LHMP was
finalized in 2006, and is a revision of the lynx plan that WDNR has
been implementing since 1996 (WDNR 1996, entire). The 1996 plan was
developed as a substitute for a species-specific critical habitat
designation required by Washington Forest Practices rules in response
to the lynx being State-listed as threatened (WDNR 2006, p. 5). The
2006 WDNR LHMP provides further provisions to avoid the incidental take
of lynx (Martin 2002, entire; WDNR 2006, p. 6). WDNR is committed to
following the LHMP until 2076, or until the lynx is delisted (WDNR
2006, p. 6). WDNR requested that lands subject to the plan be excluded
from critical habitat.
The WDNR LHMP contains measures to guide WDNR in creating and
preserving quality lynx habitat through its forest management
activities. The objectives and strategies of the LHMP are developed for
multiple planning scales (ecoprovince and ecodivision, Lynx Management
Zone, Lynx Analysis Unit (LAU), and ecological community), and include:
1. Encouraging genetic integrity at the species level by preventing
bottlenecks between British Columbia and Washington by limiting size
and shape of temporary non-habitat along the border and maintaining
major routes of dispersal between British Columbia and Washington;
2. Maintaining connectivity between subpopulations by maintaining
dispersal routes between and within zones and arranging timber harvest
activities that result in temporary non-habitat patches among
watersheds so that connectivity is maintained within each zone;
3. Maintaining the integrity of requisite habitat types within
individual home ranges by maintaining connectivity between and
integrity within home ranges used by individuals and/or family groups;
and
4. Providing a diversity of successional stages within each LAU and
connecting denning sites and foraging sites with forested cover without
isolating them with open areas by prolonging the persistence of
snowshoe hare habitat and retaining coarse woody debris for denning
sites (WDNR 2006, p. 29).
The LHMP identifies specific guidelines to achieve the objectives
and strategies at each scale; it also describes how WDNR will monitor
and evaluate the implementation and effectiveness of the HMP (WDNR
2006, pp. 29-63). WDNR has been managing for lynx for over a decade,
their management strategies appear to be effective.
Benefits of Inclusion
On WDNR State lands, it is uncommon for an action with a Federal
nexus that triggers consultation under section 7 of the Act to occur;
therefore, little benefit would be realized through section 7
consultation if these lands were included in the designation.
Some educational benefits to designating critical habitat for lynx
on WDNR managed lands may exist. However, we believe there is already
substantial awareness of the lynx and conservation issues related to
the lynx through the species being listed both under the Act and
Washington State law; through the public review process for the WDNR
HMP, Washington's Lynx Recovery Plan and the revision of the Okanogan-
Wenatchee National Forest Management Plan; lynx and snowshoe hare
research being conducted by the USFS Pacific Northwest Research
Station, Washington State University, University of Washington, and the
University of Montana; surveys being conducted by Washington Department
of Fish and Wildlife and the USFS; and State of Washington Web sites
(e.g., http://wdfw.wa.gov/wlm/diversty/soc/recovery/lynx/lynx.htm,
http://www.dnr.wa.gov/htdocs/amp/sepa/lynx/1_toc.pdf).
Benefits of Exclusion
The WDNR LHMP should provide substantial protection of features
essential to the conservation of lynx on WDNR lands, and should provide
a greater level of management for the lynx on these State lands than
designation of critical habitat. The measures contained in the WDNR
LHMP exceed any measures that might result from critical habitat
designation, because the LHMP provides lynx-specific objectives and
strategies for different planning scales, guidelines to meet the
objectives, and monitoring to evaluate implementation and
effectiveness. As a result, we do not anticipate any actions on these
lands that would destroy or adversely modify the areas.
The exclusion of WDNR lands from critical habitat would help
preserve the partnerships that we have developed with them through
development and implementation of the 2006 LHMP and the original 1996
lynx plan, both of
[[Page 8658]]
which provide for long-term lynx conservation.
Benefits of Exclusion Outweigh Benefits of Inclusion
We evaluated the proposed exclusion of approximately 126,212 ac
(51,076 ha) of lands managed by the WDNR. Including WDNR areas in the
final designation would likely not lead to any changes in WDNR
management (to further avoid destroying or adversely modifying that
habitat), and therefore the benefits of inclusion are low.
We determined that the benefits of excluding these lands in Unit 4
outweigh the benefits of including these lands as critical habitat.
Based on the above considerations, and consistent with the direction
provided in section 4(b)(2) of the Act, we find that greater benefits
to lynx exist by excluding WDNR lands from the final designation.
We find that few additional conservation benefits would be realized
through section 7 of the Act, because Federal actions are uncommon on
this State land. The habitat conservation measures addressing the
features essential to conservation of the lynx are already being
implemented on WDNR lands under the WDNR HMP, have been proven to be
effective, will be in place until at least 2076, and are providing for
physical and biological features essential to the conservation of the
species.
Exclusion Will Not Result in Extinction of the Species
We do not believe that the exclusion of 126,212 ac (51,076 ha) from
Unit 4 of this revised critical habitat designation will result in the
extinction of the species, because the WDNR plans provide for the
conservation of the species and the physical and biological features
essential to it. The jeopardy standard of section 7(a)(2) of the Act
and routine implementation of conservation measures through the section
7 process also provide assurances that the subspecies will not go
extinct. The protections afforded to the lynx under the jeopardy
standard will remain in place for the areas excluded from revised
critical habitat.
Economic Analysis
Section 4(b)(2) of the Act requires us to designate critical
habitat on the basis of the best scientific information available and
to consider the economic and other relevant impacts of designating a
particular area as critical habitat. We may exclude areas from critical
habitat upon a determination that the benefits of such exclusions
outweigh the benefits of specifying such areas as critical habitat. We
cannot exclude such areas from critical habitat when such exclusion
will result in the extinction of the species concerned.
Following the publication of the proposed revised critical habitat
designation, we conducted an economic analysis to estimate the
potential economic effect of the designation. The draft analysis was
made available for public review on October 21, 2008 (73 FR 62450). We
accepted comments on the draft analysis until November 20, 2008.
The primary purpose of the economic analysis is to estimate the
potential economic impacts associated with the designation of critical
habitat for the lynx. This information is intended to assist the
Secretary in making decisions about whether the benefits of excluding
particular areas from the designation outweigh the benefits of
including those areas in the designation. This economic analysis
considers the economic efficiency effects that may result from the
designation, including habitat protections and conservation efforts
that may be co-extensive with the listing of the species. It also
addresses distribution of impacts, including an assessment of the
potential effects on small entities and the energy industry. This
information can be used by the Secretary to assess whether the effects
of the designation might unduly burden a particular group or economic
sector.
This analysis focuses on the direct and indirect costs of the rule.
However, economic impacts to land use activities can exist in the
absence of critical habitat. These impacts may result from, for
example, local zoning laws, State and natural resource laws, and
enforceable management plans and best management practices applied by
other State and Federal agencies. Economic impacts that result from
these types of protections are not included in the analysis, as they
are considered to be part of the regulatory and policy baseline.
As discussed in the October 21, 2008, notice announcing the
availability of the draft economic analysis (73 FR 62450), the draft
analysis estimates quantifiable discounted future incremental costs of
the critical habitat designation to be $2.09 million over 20 years
($140,000 annually) using a 3 percent discount rate, or $1.48 million
over 20 years ($139,000 annually) using a 7 percent discount rate. The
EA also acknowledges that there may be additional costs, particularly
to landowners, but these costs are too speculative to quantify at this
time.
After taking into consideration public comment on the proposal, the
draft economic analysis was finalized, and we evaluated whether any
area of proposed critical habitat should be excluded due to economic
impacts (refer to Exclusions Under Section 4(b)(2) of the Act section
above). The Secretary is not excluding any lands from critical habitat
based on economic impacts. We do not believe that this final
designation will result in any substantial and disproportionate
economic impacts.
A copy of the draft and final economic analysis with supporting
documents are included in our administrative record and may be obtained
by contacting U.S. Fish and Wildlife Service, Montana Field Office (see
ADDRESSES section) or from the Internet at http://mountain-
prairie.fws.gov/species/mammals/lynx/criticalhabitat.htm.
Required Determinations
Regulatory Planning and Review
The Office of Management and Budget (OMB) has determined that this
final rule is significant and has reviewed it under Executive Order
12866 (E.O. 12866). OMB bases its determination upon the following four
criteria:
a. Whether the rule will have an annual effect of $100 million or
more on the economy or adversely affect an economic sector,
productivity, jobs, the environment, or other units of the government.
b. Whether the rule will create inconsistencies with other Federal
agencies' actions.
c. Whether the rule will materially affect entitlements, grants,
user fees, loan programs, or the rights and obligations of their
recipients.
d. Whether the rule raises novel legal or policy issues.
OMB has determined that this rule is significant because it raises
novel legal or policy issues.
Regulatory Flexibility Act (5 U.S.C. 601 et seq.)
Under the Regulatory Flexibility Act (5 U.S.C. 601 et seq.), as
amended by the Small Business Regulatory Enforcement Fairness Act (5
U.S.C. 802(2)), whenever an agency is required to publish a notice of
rulemaking for any proposed or final rule, it must prepare and make
available for public comment a regulatory flexibility analysis that
describes the effect of the rule on small entities (i.e., small
businesses, small organizations, and small government jurisdictions).
Although no regulatory flexibility analysis is required if the head of
the agency certifies the rule will not have a significant economic
impact on a
[[Page 8659]]
substantial number of small entities, we completed a final regulatory
flexibility analysis, and our final economic analysis determines that
this final rule does not result in a significant economic impact on a
substantial number of small entities.
According to the Small Business Administration (SBA), small
entities include small organizations, such as independent nonprofit
organizations and small governmental jurisdictions, including school
boards and city and town governments that serve fewer than 50,000
residents, and small businesses (13 CFR 121.201). Small businesses
include manufacturing and mining concerns with fewer than 500
employees, wholesale trade entities with fewer than 100 employees,
retail and service businesses with less than $5 million in annual
sales, general and heavy construction businesses with less than $27.5
million in annual business, special trade contractors doing less than
$11.5 million in annual business, and agricultural businesses with
annual sales less than $750,000. To determine if potential economic
impacts to these small entities are significant, we considered the
types of activities that might trigger regulatory impacts under this
designation as well as types of project modifications that may result.
In general, the term ``significant economic impact'' is meant to apply
to a typical small business firm's business operations.
To determine if this final revised designation of critical habitat
for the Canada lynx would affect a substantial number of small
entities, we considered the number of affected small entities within
particular types of economic activities (e.g., timber harvesting,
livestock grazing, residential and related development, recreation
activities, mining, and transportation). We considered each industry or
category individually. In estimating the numbers of small entities
potentially affected, we also considered whether their activities have
any Federal involvement. Critical habitat designation will not affect
activities that do not have any Federal involvement; designation of
critical habitat affects activities conducted, funded, permitted, or
authorized by Federal agencies.
In our final economic analysis of this final revised critical
habitat designation, we evaluated the potential economic effects on
small business entities from conservation actions related to the
listing of the Canada lynx and revised designation of the species'
critical habitat. The activities affected by Canada lynx conservation
efforts may include land development, transportation and utility
operations, and conservation on public and tribal lands. The following
is a summary of the information contained in the final economic
analysis:
a. Development
According to the final economic analysis, Canada lynx development-
related costs account for less than 1 percent of forecast incremental
costs, and are estimated at $8,130 (in 2008 dollars) over 20 years. The
costs consist of administrative costs of conducting consultations under
section 7 of the Act on development projects. As a result of this
information, we determined that the final revised designation is not
anticipated to have a significant economic impact on a substantial
number of small businesses with respect to development activities.
b. Forest Management
Potential costs to forest management in designated habitat account
for another 16 percent of forecast costs. Undiscounted costs are
estimated at $233,000 (in 2008 dollars) over 20 years. The costs
consist of administrative costs of conducting consultations under
section 7 of the Act on forest management. These costs are expected to
be borne by Federal and State governments, private timber landowners,
tribal landowners, and other private landowners across the units of the
designation. The administrative costs would be divided among many
entities and projects over a 20-year period. As a result of this
information, we have determined that the final revised designation is
not anticipated to have a significant economic impact on small forest
management businesses.
c. Recreation
Future costs associated with managing recreation account for an
additional 19 percent of forecast costs. Costs are estimated to be
$285,000 (in 2008 dollars) over 20 years. The costs consist of
administrative costs of conducting consultations under section 7 of the
Act associated with managing recreation (i.e., reductions of snowmobile
opportunities) in Unit 4 (North Cascades). Incremental costs would be
incurred by State and Federal agencies. As a result of this
information, we have determined that the final revised designation is
not anticipated to have a significant economic impact on a substantial
number of small recreation businesses.
d. Lynx Management Plans
Future costs associated with development of lynx management plans
account for approximately one percent of forecast costs. Costs are
estimated to be $12,300 (in 2008 dollars) over 20 years. The costs
consist of administrative costs of conducting consultations under
section 7 of the Act on lynx management plans by Federal agencies. As a
result of this information, we have determined that the final revised
designation of critical habitat is not anticipated to have a
significant economic impact on a substantial number of small
businesses.
e. Mining/Oil and Gas
Future costs associated with mining and oil and gas exploration and
development activities account for an additional 8 percent of forecast
costs. Costs are estimated at $115,000 (in 2008 dollars) over 20 years.
The costs consist of administrative costs of conducting consultations
under section 7 of the Act on mining and oil and gas projects by
Federal agencies in Units 2, 4, and 5. As a result of this information,
we have determined that the final revised designation of critical
habitat is not anticipated to have a significant economic impact on a
substantial number of small mining or oil and gas businesses.
Executive Order 13211
On May 18, 2001, the President issued E.O. 13211 on regulations
that significantly affect energy supply, distribution, and use. E.O.
13211 requires agencies to prepare Statements of Energy Effects when
undertaking certain actions. As described above, this rule is
considered a significant regulatory action under E.O. 12866 due to
potential novel legal and policy issues. OMB's guidance in M-01-27 for
implementing this Executive Order outlines nine outcomes that may
constitute ``a significant adverse effect'' when compared to no
regulatory action. The final economic analysis finds that none of these
outcomes will result from the critical habitat designation for lynx
(refer to Appendix B). Thus, based on the information in our economic
analysis, no energy-related incremental impacts associated with Canada
lynx revised critical habitat are expected other than administrative
costs. Costs are estimated at $115,000 (in 2008 dollars) over 20 years.
The costs consist of administrative costs of conducting consultations
under section 7 of the Act on mining and oil and gas projects by
Federal agencies in Units 2, 4, and 5. As such, the designation of
critical habitat
[[Page 8660]]
is not expected to significantly affect energy supplies, distribution,
or use and a Statement of Energy Effects is not required.
Unfunded Mandates Reform Act (2 U.S.C. 1501 et seq.)
In accordance with the Unfunded Mandates Reform Act (2 U.S.C.
1501), the Service makes the following findings:
a. This rule will not produce a Federal mandate. In general, a
Federal mandate is a provision in legislation, statute or regulation
that would impose an enforceable duty upon State, local, tribal
governments, or the private sector and includes both ``Federal
intergovernmental mandates'' and ``Federal private sector mandates.''
These terms are defined in 2 U.S.C. 658(5)-(7). ``Federal
intergovernmental mandate'' includes a regulation that ``would impose
an enforceable duty upon State, local, or tribal governments'' with two
exceptions. It excludes ``a condition of Federal assistance.'' It also
excludes ``a duty arising from participation in a voluntary Federal
program,'' unless the regulation ``relates to a then-existing Federal
program under which $500,000,000 or more is provided annually to State,
local, and tribal governments under entitlement authority,'' if the
provision would ``increase the stringency of conditions of assistance''
or ``place caps upon, or otherwise decrease, the Federal Government's
responsibility to provide funding,'' and the State, local, or tribal
governments ``lack authority'' to adjust accordingly. At the time of
enactment, these entitlement programs were: Medicaid; AFDC work
programs; Child Nutrition; Food Stamps; Social Services Block Grants;
Vocational Rehabilitation State Grants; Foster Care, Adoption
Assistance, and Independent Living; Family Support Welfare Services;
and Child Support Enforcement. ``Federal private sector mandate''
includes a regulation that ``would impose an enforceable duty upon the
private sector, except (i) a condition of Federal assistance or (ii) a
duty arising from participation in a voluntary Federal program.''
The designation of critical habitat does not impose a legally
binding duty on non-Federal government entities or private parties.
Under the Act, the only regulatory effect is that Federal agencies must
ensure that their actions do not destroy or adversely modify critical
habitat under section 7. While non-Federal entities receiving Federal
funding, assistance, or permits, or otherwise requiring approval or
authorization from a Federal agency for an action, may be indirectly
impacted by the designation of critical habitat, the legally binding
duty to avoid destruction or adverse modification of critical habitat
rests squarely on the Federal agency. Furthermore, to the extent that
non-Federal entities are indirectly impacted because they receive
Federal assistance or participate in a voluntary Federal aid program,
the Unfunded Mandates Reform Act would not apply; nor would critical
habitat shift the costs of the large entitlement programs listed above
on to State governments.
b. We do not believe that this rule would significantly or uniquely
affect small governments. The economic analysis discusses potential
impacts of critical habitat designation for the Canada lynx on timber
management, recreation, land development, mining, oil and gas
development, and the development of management plans. The analysis
estimates costs of the rule to be $2.11 million at present value over a
20-year period ($142,000 annualized) assuming a 3 percent discount
rate, and $1.49 million ($141,000 annualized) assuming a 7 percent
discount rate. Most of the impacts are expected to affect Federal
agencies through administrative costs associated with consultations
under section 7 of the Act. Impacts on small governments are not
anticipated, or they are anticipated to be passed through to consumers.
The SBA does not consider the Federal Government to be a small
governmental jurisdiction or entity. Consequently, we do not believe
that the designation of critical habitat for the Canada lynx will
significantly or uniquely affect small government entities. As such, a
Small Government Agency Plan is not required.
Takings
In accordance with Executive Order 12630 (``Government Actions and
Interference with Constitutionally Protected Private Property
Rights''), we have analyzed the potential takings implications of
designating critical habitat for the lynx in a takings implications
assessment. The takings implications assessment concludes that this
designation of critical habitat for the lynx does not pose significant
takings implications.
Federalism
In accordance with Executive Order 13132, the rule does not have
significant Federalism effects. A Federalism assessment is not
required. In keeping with Department of the Interior policy, we
requested information from, and coordinated development of, the
critical habitat designation with appropriate State resource agencies
in Idaho, Maine, Minnesota, Montana, Washington, and Wyoming. We
believe that this resulting final designation of critical habitat for
the lynx will have little incremental impact on State and local
governments and their activities. The designation may have some benefit
to these governments in that the areas important to the conservation of
the species are more clearly defined, and the primary constituent
element of the habitat essential to the survival and conservation of
the species is specifically identified. While making this definition
and identification does not alter where and what federally sponsored
activities may occur, it may assist these local governments in long-
range planning (rather than waiting for case-by-case section 7
consultations to occur).
Civil Justice Reform
In accordance with Executive Order 12988, the Office of the
Solicitor has determined that the rule does not unduly burden the
judicial system and meets the requirements of sections 3(a) and 3(b)(2)
of the Order. We have designated critical habitat in accordance with
the provisions of the Act. This final designation uses standard
property descriptions and identifies the primary constituent element
within the designated areas to assist the public in understanding the
habitat needs of the lynx.
Paperwork Reduction Act of 1995 (44 U.S.C. 3501 et seq.)
This final rule does not contain any new collections of information
that require approval by OMB under the Paperwork Reduction Act. This
rule will not impose recordkeeping or reporting requirements on State
or local governments, individuals, businesses, or organizations. An
agency may not conduct or sponsor, and a person is not required to
respond to, a collection of information unless it displays a currently
valid OMB control number.
National Environmental Policy Act
We have undertaken a NEPA analysis for this critical habitat
designation and notified the public of the availability of the draft
environmental assessment for the proposed rule on October 21, 2008. The
final environmental assessment, as well as a Finding of No Significant
Impact (FONSI), is available upon request from the Field Supervisor,
Montana Fish and Wildlife Office (see ADDRESSES section) or on our Web
site at http://mountain-prairie.fws.gov/
[[Page 8661]]
species/mammals/lynx/criticalhabitat.htm
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 ``Consultation and
Coordination with Indian Tribal Governments,'' and the Department of
the Interior Manual at 512 DM 2, we readily acknowledge our
responsibility to communicate meaningfully with recognized Federal
Tribes on a government-to-government basis. Tribal lands determined to
be essential to the conservation of the lynx have been excluded from
this critical habitat designation. Please refer to our discussion of
Tribal lands under the Relationship of Critical Habitat to Tribal Lands
section of this final rule.
References Cited
A complete list of all references cited in this rulemaking is
available on the Web site http://mountain-prairie.fws.gov/species/
mammals/lynx/ or upon request from the Field Supervisor, Montana Field
Office (see ADDRESSES).
List of Subjects in 50 CFR Part 17
Endangered and threatened species, Exports, Imports, Reporting and
recordkeeping requirements, Transportation.
Regulation Promulgation
0
Accordingly, we amend part 17, subchapter B of chapter I, title 50 of
the Code of Federal Regulations, as set forth below:
PART 17--[AMENDED]
0
1. The authority citation for part 17 continues to read as follows:
Authority: 16 U.S.C. 1361-1407; 16 U.S.C. 1531-1544; 16 U.S.C.
4201-4245; Pub. L. 99-625, 100 Stat. 3500; unless otherwise noted.
0
2. In Sec. 17.11(h), revise the entry for ``Lynx, Canada'' under
``MAMMALS'' to read as follows:
Sec. 17.11 Endangered and threatened wildlife.
* * * * *
(h) * * *
--------------------------------------------------------------------------------------------------------------------------------------------------------
Species Vertebrate
-------------------------------------------------------- population where Critical Special
Historic range endangered or Status When listed habitat rules
Common name Scientific name threatened
--------------------------------------------------------------------------------------------------------------------------------------------------------
Mammals
* * * * * * *
Lynx, Canada..................... Lynx canadensis..... U.S.A. (AK, CO, ID, CO, ID, ME, MI, MN, T 692 17.95(a) 17.40(k)
ME, MI, MN, MT, MT, NH, NY, OR,
NH, NY, OR, UT, UT, VT, WA, WI, WY.
VT, WA, WI, WY),
Canada,
circumboreal.
* * * * * * *
--------------------------------------------------------------------------------------------------------------------------------------------------------
0
3. In Sec. 17.95(a), revise the entry for ``Canada lynx (Lynx
canadensis)'' to read as follows:
Sec. 17.95 Critical habitat--fish and wildlife.
(a) Mammals.
* * * * *
Canada lynx (Lynx canadensis)
(1) Critical habitat units are depicted on the maps below for the
following States and Counties:
(i) Idaho: Boundary County;
(ii) Maine: Aroostook, Franklin, Penobscot, Piscataquis, and
Somerset Counties;
(iii) Minnesota: Cook, Koochiching, Lake, and St. Louis Counties;
(iv) Montana: Carbon, Flathead, Gallatin, Glacier, Granite, Lake,
Lewis and Clark, Lincoln, Missoula, Park, Pondera, Powell, Stillwater,
Sweetgrass, and Teton Counties;
(v) Washington: Chelan and Okanogan Counties; and
(vi) Wyoming: Fremont, Lincoln, Park, Sublette, and Teton Counties.
(2) Within these areas, the primary constituent element for the
Canada lynx is boreal forest landscapes supporting a mosaic of
differing successional forest stages and containing all of the
following:
(i) Presence of snowshoe hares and their preferred habitat
conditions, which include dense understories of young trees, shrubs or
overhanging boughs that protrude above the snow, and mature
multistoried stands with conifer boughs touching the snow surface;
(ii) Winter snow conditions that are generally deep and fluffy for
extended periods of time;
(iii) Sites for denning that have abundant coarse woody debris,
such as downed trees and root wads; and
(iv) Matrix habitat (e.g., hardwood forest, dry forest, non-forest,
or other habitat types that do not support snowshoe hares) that occurs
between patches of boreal forest in close juxtaposition (at the scale
of a lynx home range) such that lynx are likely to travel through such
habitat while accessing patches of boreal forest within a home range.
(3) Critical habitat does not include waterbodies, including lakes,
reservoirs, or rivers, or human-made structures existing on the
effective date of this rule, such as buildings, paved and gravel
roadbeds, and the land on which such structures are located.
(4) Index map for Canada lynx critical habitat follows:
[[Page 8662]]
[GRAPHIC] [TIFF OMITTED] TR25FE09.000
(5) Unit 1: Northern Maine; Aroostook, Franklin, Penobscot,
Piscataquis and Somerset Counties, Maine.
(i) Coordinate projection: UTM, NAD83, Zone 19, Meters. Coordinate
definition: (easting, northing).
(ii) Polygon bounded by the following coordinates: (416400,
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(iii) Polygon bounded by the following coordinates: (533825,
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[[Page 8663]]
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[[Page 8664]]
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5093134) (515077, 5092769) (515671, 5092367) (516125, 5091625) (516726,
5091316) (517122, 5090636) (518287, 5089320) (518905, 5088839) (520105,
5088478) (520482, 5088026) (520911, 5087908) (521888, 5087145) (522194,
5087124) (522670, 5086479) (522815, 5085912) (523418, 5085518) (523123,
5085864) (523741, 5085225) (523741, 5083814) (529802, 5083840) (529617,
5084108) (530005, 5084114) (530043, 5083844) (534239, 5083909) (534260,
5067638) (533177, 5067643) (533105, 5067037) (532081, 5064746) (532003,
5064314) (532143, 5063634) (531636, 5062592) (531585, 5062178) (532238,
5060764) (532143, 5060093) (533165, 5058935) (533825, 5057403),
excluding the island polygons bounded by the following coordinates:
(523750, 5082709) (513700, 5082738) (513599, 5072853) (523768, 5072898)
(523750, 5082709), b) (479953, 5077619) (479924, 5078543) (479761,
5078587) (479731, 5078996) (479866, 5079938) (479766, 5081621) (479488,
5082258) (479182, 5082685) (478506, 5083113) (477717, 5083220) (477550,
5083439) (476922, 5083400) (476986, 5082589) (476604, 5081545) (476766,
5080941) (476421, 5079210) (476937, 5077638) (479953, 5077619) (484820,
5087152) (484919, 5081791) (485890, 5081372) (485887, 5080973) (486695,
5081006) (487907, 5080395) (487910, 5080173) (487510, 5080036) (487456,
5080423) (486815, 5080578) (486744, 5080452) (486496, 5080634) (486711,
5080406) (486496, 5080580) (486496, 5080310) (485946, 5080384) (486844,
5080142) (487174, 5080202) (487669, 5079975) (487990, 5080154) (490035,
5080167) (494410, 5077771) (494314, 5078658) (493597, 5078752) (492876,
5079197) (492831, 5087037) (493279, 5087017) (493353, 5095938) (494485,
5095926) (494601, 5096246) (494440, 5096226) (494350, 5096864) (493908,
5097136) (493864, 5097841) (493365, 5098142) (493417, 5108089) (488853,
5108054) (488567, 5107824) (488051, 5107805) (486906, 5108008) (486338,
5107874) (485869, 5108035) (483292, 5108015) (483299, 5098222) (473357,
5098151) (473353, 5098914) (473161, 5098294) (472870, 5098030) (472861,
5096680) (473842, 5095069) (473899, 5094727) (474167, 5094572) (474536,
5093901) (474778, 5093935) (474657, 5093578) (475069, 5092937) (474618,
5091608) (474913, 5091112) (474728, 5090926) (474786, 5090772) (475369,
5089715) (475228, 5089418) (475228, 5088407) (475734, 5087767) (475741,
5087560) (476768, 5086912) (477208, 5086332) (477534, 5086260) (477572,
5085709) (478422, 5085245) (478450, 5085040) (479362, 5084434) (479645,
5083957) (479440, 5087274) (484820, 5087152), excluding the island
polygons bounded by the following coordinates: (467820, 5103153)
(468131, 5103309) (469054, 5105153) (468756, 5105539) (468580, 5105388)
(468421, 5105469) (468159, 5106182) (468368, 5106469) (468239, 5106659)
(468445, 5106719) (468970, 5106448) (469369, 5105831) (469834, 5105732)
(470166, 5106029) (470451, 5105824) (470627, 5105912) (470778, 5107550)
(471219, 5108431) (471588, 5108493) (471521, 5109030) (471951, 5109508)
(471556, 5109524) (471656, 5109872) (471935, 5109988) (472017, 5109878)
(471990, 5110102) (472474, 5110119) (472818, 5110442) (472827, 5110191)
(472513, 5109801) (472002, 5109592) (472406, 5109318) (472287, 5108164)
(472091, 5107929) (471791, 5106847) (471521, 5106589) (471228, 5105369)
(471561, 5104469) (472181, 5103992) (472713, 5103914) (473346, 5103453)
(473341, 5117800) (463623, 5117895) (463664, 5109846) (464395, 5109021)
(464830, 5108057) (464273, 5107543) (464353, 5106869) (465334, 5105990)
(465868, 5104563) (466148, 5104243) (466698, 5103841) (467171, 5104129)
(467430, 5103471) (467820, 5103153), excluding the island polygons
bounded by the following coordinates: (513717, 5116742) (513718,
5116540) (514376, 5116517) (514529, 5116386) (514380, 5116088) (513719,
5116170) (513718, 5115655) (514919, 5115604) (514765, 5115421) (514620,
5115487) (514565, 5115286) (513945, 5115325) (513699, 5115190) (513711,
5114024) (514843, 5114026) (515362, 5114145)
[[Page 8666]]
(515600, 5114386) (515533, 5113983) (515327, 5113966) (515267, 5113756)
(515582, 5113670) (515884, 5114019) (516058, 5113854) (516994, 5113761)
(517213, 5113486) (517532, 5113728) (517487, 5113372) (517656, 5113152)
(517849, 5113163) (517863, 5112906) (517583, 5112667) (516876, 5113081)
(516668, 5112974) (516709, 5112814) (516389, 5112925) (515935, 5112465)
(515849, 5112210) (516477, 5112181) (516485, 5111960) (516777, 5111753)
(516486, 5111452) (516586, 5111206) (516447, 5110863) (516340, 5111114)
(516504, 5110541) (516299, 5109920) (516396, 5108705) (516077, 5108921)
(516076, 5108549) (515915, 5108494) (515901, 5108814) (515836, 5108365)
(515658, 5108258) (515711, 5108007) (513692, 5108005) (513670, 5098024)
(521046, 5097931) (520991, 5098233) (520317, 5099019) (520426, 5099452)
(520237, 5099969) (519460, 5100732) (519225, 5100795) (518258, 5102129)
(517684, 5102188) (517681, 5102652) (517811, 5102611) (517693, 5103365)
(517813, 5103517) (516534, 5104235) (516042, 5104351) (515949, 5104522)
(516191, 5104509) (516158, 5104712) (515717, 5104699) (515672, 5104971)
(516144, 5105068) (515879, 5105499) (515724, 5105422) (515864, 5105252)
(515778, 5105118) (515612, 5105120) (515480, 5105384) (515778, 5105957)
(515742, 5106525) (515448, 5107126) (515592, 5107646) (515804, 5107743)
(515744, 5107967) (518793, 5107949) (518717, 5111938) (518324, 5111938)
(518374, 5116237) (517498, 5116242) (517470, 5117924) (513720, 5117929)
(513717, 5116742), excluding the island polygons bounded by the
following coordinates: (480895, 5117922) (483208, 5117969) (483166,
5127993) (478242, 5128006) (478362, 5127510) (477921, 5127090) (477988,
5126692) (477876, 5126608) (476096, 5126601) (475632, 5126339) (475646,
5125802) (476020, 5124991) (475934, 5124131) (476289, 5124172) (476690,
5123507) (477318, 5123063) (478316, 5123062) (479020, 5122862) (479240,
5122962) (479189, 5122624) (479459, 5122600) (479490, 5122456) (480115,
5122576) (479912, 5122239) (479395, 5122059) (479041, 5121432) (478750,
5121537) (478881, 5121840) (478542, 5122287) (477539, 5122450) (477039,
5122326) (476943, 5120118) (479311, 5119464) (479779, 5118849) (480469,
5118367) (480792, 5118318) (480895, 5117922), and excluding the island
polygons bounded by the following coordinates: (371100, 5047834)
(372416, 5040243) (372542, 5040170) (372542, 5039535) (382353, 5041114)
(381765, 5044067) (384623, 5044630) (384594, 5044960) (384801, 5044665)
(385302, 5044899) (385457, 5044904) (385397, 5044782) (386476, 5044994)
(385969, 5045113) (385967, 5045303) (386306, 5045497) (386995, 5045096)
(387743, 5045243) (387341, 5047432) (381308, 5046305) (380368, 5051014)
(370847, 5049328) (371100, 5047834).
(iv) Map of Unit 1, Northern Maine, follows:
[[Page 8667]]
[GRAPHIC] [TIFF OMITTED] TR25FE09.001
[[Page 8668]]
BILLING CODE 4310-55-P
(6) Unit 2: Northeastern Minnesota; Cook, Koochiching, Lake, and
St. Louis Counties.
(i) Coordinate Projection: UTM, NAD83, Zone 15, Meters. Coordinate
Definition: (easting, northing)
(ii) Polygon bounded by the following coordinates: (485851,
5386598) (487031, 5385449) (493478, 5385989) (501006, 5385538) (503370,
5386443) (503698, 5386277) (503742, 5383856) (505199, 5383680) (506669,
5382536) (507803, 5382385) (520034, 5376270) (525283, 5377047) (526934,
5376672) (527650, 5373939) (527629, 5373409) (527187, 5372687) (527496,
5372267) (526808, 5371864) (525551, 5372121) (525010, 5371520) (523215,
5371634) (522261, 5371345) (522081, 5370214) (521489, 5368900) (521544,
5368616) (521240, 5367800) (523065, 5365665) (524909, 5365241) (525502,
5364809) (531538, 5365306) (534244, 5366112) (536425, 5366133) (537774,
5364249) (538324, 5363977) (538811, 5362962) (540222, 5362390) (540234,
5361025) (538768, 5357770) (539282, 5355573) (540666, 5352664) (541724,
5350845) (542131, 5350375) (542525, 5350292) (543395, 5349087) (544997,
5345416) (545028, 5345058) (545323, 5344651) (545115, 5344603) (545106,
5344395) (545474, 5344442) (545592, 5344280) (545421, 5343871) (545491,
5343638) (545650, 5343626) (545695, 5343228) (546081, 5342644) (546125,
5342169) (546395, 5341597) (546732, 5341312) (546800, 5340975) (547025,
5341199) (546936, 5341317) (547371, 5341246) (548154, 5342103) (548944,
5342290) (549150, 5342617) (549596, 5342514) (550494, 5342903) (550754,
5343177) (553425, 5343653) (554224, 5344143) (553913, 5345066) (552701,
5345985) (552347, 5346682) (552444, 5347215) (552285, 5347274) (551818,
5348580) (552311, 5350577) (551462, 5351690) (551561, 5352365) (552277,
5352518) (552696, 5354576) (554626, 5355960) (557717, 5355297) (558107,
5354868) (558758, 5354922) (558725, 5355251) (559083, 5355662) (559588,
5355511) (559737, 5355309) (560832, 5355613) (560949, 5356227) (561296,
5356474) (561937, 5356884) (563310, 5357206) (563453, 5356161) (567846,
5355943) (568295, 5356432) (569979, 5356505) (570559, 5355277) (570742,
5355165) (570553, 5354927) (570632, 5353948) (571267, 5353643) (571818,
5352875) (574090, 5352383) (573170, 5349780) (573223, 5348638) (573647,
5347798) (573727, 5346277) (575016, 5345664) (575707, 5344274) (575905,
5344260) (576022, 5343966) (576472, 5344374) (576278, 5344623) (576361,
5344933) (577578, 5344862) (577657, 5344501) (578069, 5344130) (577339,
5343926) (577307, 5342752) (577859, 5342736) (578470, 5342413) (578925,
5342852) (580182, 5343160) (580577, 5343423) (581317, 5343200) (582181,
5343276) (582860, 5342153) (584095, 5341278) (584373, 5339925) (587925,
5340493) (588390, 5339925) (589825, 5339464) (590017, 5338832) (590203,
5338817) (590646, 5339299) (591825, 5339337) (592101, 5339815) (592432,
5339944) (592619, 5339376) (593003, 5339140) (593513, 5339193) (593519,
5339798) (595443, 5339276) (595653, 5339049) (595819, 5338415) (595649,
5337869) (595048, 5337126) (594801, 5336068) (594943, 5335869) (595886,
5336309) (596238, 5336066) (596307, 5334851) (596027, 5334042) (596460,
5333252) (596741, 5333208) (596834, 5332940) (596730, 5331768) (595877,
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5323014) (616981, 5322828) (618166, 5323437) (619826, 5323820) (621336,
5325267) (621767, 5325009) (623566, 5325743) (623915, 5325327) (624368,
5325382) (624838, 5325708) (627312, 5325875) (628388, 5326437) (629064,
5326454) (630332, 5327084) (631594, 5328550) (632932, 5329237) (634681,
5331741) (635184, 5331391) (637038, 5333401) (638516, 5334539) (638480,
5334865) (638344, 5334837) (638195, 5335148) (639862, 5335858) (640200,
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5344049) (655417, 5344814) (656948, 5345787) (657279, 5345195) (657774,
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5345361) (660420, 5345179) (660543, 5344662) (660412, 5343884) (660613,
5343635) (660957, 5339349) (660823, 5338248) (661135, 5337857) (661722,
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5336898) (665357, 5336659) (665167, 5335414) (665251, 5335150) (665063,
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5333689) (664974, 5333783) (664890, 5333439) (664540, 5333413) (664422,
5333132) (664652, 5332857) (664951, 5332882) (664995, 5332675) (665444,
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5328858) (668164, 5329277) (671028, 5329525) (672252, 5330052) (675576,
5330496) (676629, 5331444) (677229, 5331445) (678166, 5331947) (679258,
5332147) (679331, 5332396) (680106, 5332893) (680460, 5332536) (681171,
5332780) (681634, 5332705) (681912, 5332177) (680907, 5331032) (681327,
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5330400) (686416, 5330291) (686589, 5330599) (686881, 5330350) (687115,
5330365) (687593, 5330708) (687785, 5331078) (688241, 5331165) (688517,
5331489) (690021, 5330950) (690708, 5330442) (692753, 5331219) (693312,
5331243) (694581, 5330511) (694899, 5329958) (695478, 5329743) (695630,
5329782) (695566, 5330087) (696009, 5330178) (697733, 5330194) (698190,
5330414) (698261, 5330797) (698763, 5331117) (700232, 5331530) (701152,
5331217) (701547, 5330848) (701814, 5330865) (702893, 5331360) (704439,
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5321101) (729558, 5320878) (728916, 5320845) (729566, 5320869) (729569,
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5306178) (732586, 5305934) (732056, 5306311) (731604, 5305961) (731070,
5305917) (730937,
[[Page 8669]]
5305606) (730619, 5305523) (730417, 5305718) (730128, 5305618) (729547,
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[[Page 8670]]
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excluding the island polygons bounded by the following coordinates:
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(546982, 5297486) (546582, 5297486) (546582, 5296686) (546982, 5296686)
(546982, 5295075) (548604, 5295010) (548636, 5294395) (549035, 5294744)
(549209, 5294714) (548991, 5294946) (549118, 5295446) (550064, 5295302)
(550654, 5295491) (550627, 5295717) (550772, 5295819) (551147, 5295794)
(550509, 5296142) (550590, 5296557) (550700, 5296679) (550882, 5296549)
(551184, 5296886) (551806, 5297048) (551805, 5297285) (551560, 5297461)
(551395, 5297158) (551015, 5297119) (550801, 5297195) (550803, 5297409)
(550626, 5297206) (550226, 5297611) (549696, 5297639) (549730, 5297462)
(550257, 5297179) (550060, 5296818) (549570, 5296788) (549355, 5297045)
(549076, 5296918) (548901, 5297169) (548637, 5297063) (548182, 5297486)
(548182, 5298287) (547782, 5298287) (547782, 5297886) (546982, 5297886)
(546982, 5297486), and excluding the island polygons bounded by the
following coordinates: (620214, 5238106) (620245, 5236496) (621852,
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5241388) (621690, 5244578) (620112, 5244552) (620214, 5238106).
(iii) Map of Unit 2, Northeastern Minnesota, follows:
BILLING CODE 4310-55-P
[GRAPHIC] [TIFF OMITTED] TR25FE09.002
(7) Unit 3: Northern Rocky Mountains; Boundary County, Idaho;
Flathead, Glacier, Granite, Lake, Lewis and Clark, Lincoln, Missoula,
Pondera, Powell, and Teton Counties, Montana.
(i) Coordinate Projection: UTM, NAD83, Zone 12, Meters. Coordinate
Definition: (easting, northing).
(ii) Polygon bounded by the following coordinates: (122575,
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[[Page 8671]]
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(iii) Polygon bounded by the following coordinates: (186659,
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[[Page 8672]]
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[[Page 8673]]
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[[Page 8674]]
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[[Page 8679]]
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[[Page 8680]]
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[[Page 8681]]
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[[Page 8682]]
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[[Page 8683]]
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[[Page 8684]]
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excluding the island polygons bounded by the following coordinates:
(289728, 5296719) (287436, 5297700) (285628, 5297666) (286024, 5294148)
(285732, 5291528) (285682, 5288116) (286591, 5288133) (286606, 5287337)
(286973, 5285979) (289243, 5280109) (290182, 5278535) (291698, 5276517)
(291954, 5275043) (291861, 5273905) (292665, 5273465) (293262, 5271998)
(293071, 5270061) (294239, 5268378) (295509, 5267378) (296804, 5265015)
(297875, 5262534) (298201, 5257310) (298100, 5256625) (298921, 5255277)
(299400, 5254035) (299537, 5252787) (301306, 5255435) (303208, 5257063)
(303528, 5258206) (302400, 5257730) (301508, 5256804) (299903, 5257455)
(300216, 5258940) (299920, 5262572) (300583, 5263608) (299151, 5267220)
(296826, 5275931) (294813, 5280214) (294077, 5283043) (293565, 5286103)
(293435, 5293036) (291919, 5295055) (289728, 5296719).
(viii) Polygon bounded by the following coordinates: (326871,
5210120) (327424, 5209899) (327295, 5209641) (327488, 5209523) (328236,
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[[Page 8685]]
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[[Page 8686]]
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(x) Map of Unit 3, Northern Rocky Mountains, follows:
BILLING CODE 4310-55-P
[[Page 8687]]
[GRAPHIC] [TIFF OMITTED] TR25FE09.003
[[Page 8688]]
(8) Unit 4: North Cascades; Chelan and Okanogan Counties,
Washington.
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[[Page 8690]]
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[[Page 8691]]
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[[Page 8692]]
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[[Page 8693]]
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[[Page 8694]]
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(ix) Map of Unit 4, North Cascades, follows:
BILLING CODE 4310-55-P
[[Page 8695]]
[GRAPHIC] [TIFF OMITTED] TR25FE09.004
BILLING CODE 4310-55-C
[[Page 8696]]
(9) Unit 5: Greater Yellowstone Area; Gallatin, Park, Sweetgrass,
Stillwater, and Carbon Counties in Montana; Park, Teton, Fremont,
Sublette, and Lincoln Counties, Wyoming.
(i) Coordinate Projection: UTM, NAD83, Zone 12, Meters; Coordinate
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[[Page 8697]]
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[[Page 8698]]
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[[Page 8699]]
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[[Page 8700]]
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[[Page 8701]]
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5008885) (517562, 5008910) (517517, 5012228) (518705, 5012248) (518731,
5013041) (520352, 5013051) (520341, 5013854) (520739, 5013860) (520747,
5014258) (521145, 5014271) (521147, 5015471) (521990, 5015470) (521983,
5017064) (522782, 5017074) (522782, 5017884) (523591, 5017904) (523582,
5019943) (523982, 5019949) (523989, 5020350) (533177, 5020385) (533168,
5022011) (533851, 5022114) (533797, 5029848) (533988, 5029884) (533795,
5029975) (533779, 5033366) (535307, 5033411) (535315, 5036607) (536926,
5036625) (536888, 5041518) (538517, 5041529) (538247, 5051033) (544713,
5051065) (544714, 5050774) (549611, 5050883) (549610, 5050575) (550414,
5050579) (550436, 5049775) (551226, 5049783) (551262, 5047790) (552872,
5047796) (552875, 5046982) (552074, 5046979) (552078, 5046189) (552495,
5046191) (552500, 5044571) (571035, 5044830) (571042, 5044023) (573851,
5044060) (573759, 5053096) (574157, 5052926) (574199, 5052222) (574636,
5051974) (574780, 5051540) (575142, 5051164) (574872, 5050594) (575057,
5049809) (575485, 5049471) (575961, 5048756) (576562, 5048473) (576032,
5047010) (576164, 5046493) (576405, 5046711) (577360, 5046694) (577545,
5046830) (577536, 5047241) (577761, 5047783) (577572, 5049101) (577708,
5049316) (577426, 5049936) (577459, 5050304) (577678, 5050493) (577705,
5051142) (578545, 5051890) (578330, 5052550) (578358, 5053440) (578953,
5054377) (579362, 5054567) (579839, 5054454) (579823, 5055204) (580304,
5056095) (580862, 5056730) (580928, 5057592) (583329, 5057658).
(iii) Map of Unit 5, Greater Yellowstone Area, follows:
BILLING CODE 4310-55-P
[[Page 8702]]
[GRAPHIC] [TIFF OMITTED] TR25FE09.005
Dated: February 12, 2009.
Jane Lyder,
Assistant Deputy Secretary, Department of the Interior.
[FR Doc. E9-3512 Filed 2-24-09; 8:45 am]
BILLING CODE 4310-55-C