[Federal Register Volume 87, Number 26 (Tuesday, February 8, 2022)]
[Proposed Rules]
[Pages 7077-7079]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2022-02422]
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DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
50 CFR Part 17
[Docket No. FWS-R2-ES-2021-0153; FF09E21000 FXES1111090FEDR 223]
Endangered and Threatened Wildlife and Plants; 12-Month Finding
for the Sonoran Desert Tortoise
AGENCY: Fish and Wildlife Service, Interior.
ACTION: Notification of finding.
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SUMMARY: We, the U.S. Fish and Wildlife Service (Service), announce a
12-month finding on a petition to list the Sonoran desert tortoise
(Gopherus morafkai) as an endangered or threatened species under the
Endangered Species Act of 1973, as amended (Act). After a thorough
review of the best available scientific and commercial information, we
find that it is not warranted at this time to list the Sonoran desert
tortoise. However, we ask the public to submit to us at any time any
new information relevant to the status of the Sonoran desert tortoise
or its habitat.
DATES: The finding in this document was made on February 8, 2022.
ADDRESSES: A detailed description of the basis for this finding is
available on the internet at https://www.regulations.gov under Docket
No. FWS-R2-ES-2021-0153.
Supporting information used to prepare this finding is available by
contacting the person listed under FOR FURTHER INFORMATION CONTACT.
Please submit any new information, materials, comments, or questions
concerning this finding to the person listed under FOR FURTHER
INFORMATION CONTACT.
FOR FURTHER INFORMATION CONTACT: Mark Lamb, Arizona Ecological Services
Field Office, 9828 North 31st Ave. C3, Phoenix, AZ 85051-2517;
telephone 602-242-0210. Persons who use a telecommunications device for
the deaf (TDD) may call the Federal Relay Service at 800-877-8339.
SUPPLEMENTARY INFORMATION:
Background
Under section 4(b)(3)(B) of the Act (16 U.S.C. 1531 et seq.), we
are required to make a finding whether or not a petitioned action is
warranted within 12 months after receiving any petition for which we
have determined contains substantial scientific or commercial
information indicating that the petitioned action may be warranted
(``12-month finding''). We must make a finding that the petitioned
action is: (1) Not warranted; (2) warranted; or (3) warranted but
precluded. We must publish a notice of these 12-month findings in the
Federal Register.
Summary of Information Pertaining to the Five Factors
Section 4 of the Act (16 U.S.C. 1533) and the implementing
regulations (50 CFR part 424) set forth procedures for adding species
to, removing species from, or reclassifying species on the Lists of
Endangered and Threatened Wildlife and Plants (Lists). The Act states
that the term ``species'' includes any subspecies of fish or wildlife
or plants, and any distinct population segment of any species of
vertebrate fish or wildlife which interbreeds when mature (16 U.S.C.
1532(16)). The Act defines an ``endangered species'' as any species
that is in danger of extinction throughout all or a significant portion
of its range (16 U.S.C. 1532(6)), and a ``threatened species'' as any
species that is likely to become an endangered species within the
foreseeable future throughout all or a significant portion of its range
(16 U.S.C. 1532(20)). The Act requires that we determine whether any
species is an endangered species or a threatened species because of any
of the following factors:
(A) The present or threatened destruction, modification, or
curtailment of its habitat or range;
(B) Overutilization for commercial, recreational, scientific, or
educational purposes;
(C) Disease or predation;
(D) The inadequacy of existing regulatory mechanisms; or
(E) Other natural or manmade factors affecting its continued
existence.
These factors represent broad categories of natural or human-caused
actions or conditions that could have an effect on a species' continued
existence. In evaluating these actions and conditions, we look for
those that may have a negative effect on individuals of the species, as
well as other actions or conditions that may ameliorate any negative
effects or may have positive effects.
We use the term ``threat'' to refer in general to actions or
conditions that are known to or are reasonably likely to negatively
affect individuals of a species. The term ``threat'' includes actions
or conditions that have a direct impact on individuals (direct
impacts), as well as those that affect individuals through alteration
of their habitat or required resources (stressors). The term ``threat''
may encompass--either together or separately--the source of the action
or condition or the action or condition itself. However, the mere
identification of any threat(s) does not necessarily mean that the
species meets the statutory definition of an ``endangered species'' or
a ``threatened species.'' In determining whether a species meets either
definition, we must evaluate all identified threats by considering the
expected response by the species, and the effects of the threats--in
light of those actions and conditions that will ameliorate the
threats--on an individual, population, and species level. We evaluate
each threat and its expected effects on the species, then analyze the
cumulative effect of all of the threats on the species as a whole. We
also consider the cumulative effect of the threats in light of those
actions and conditions that will have positive effects on the species,
such as any existing regulatory mechanisms or conservation efforts. The
Secretary determines whether the species meets the definition of an
``endangered species'' or a ``threatened species'' only after
conducting this cumulative analysis and describing the expected effect
on the species now and in the foreseeable future.
The Act does not define the term ``foreseeable future,'' which
appears in the statutory definition of ``threatened species.'' Our
implementing regulations at 50 CFR 424.11(d) set forth a framework for
evaluating the foreseeable future on a case-by-case basis. The term
``foreseeable future'' extends only so far into the future as the
Service can reasonably determine that both the future threats and the
species' responses to those threats are likely. In other words, the
foreseeable future is the period of time in which we can make reliable
predictions. ``Reliable'' does not mean ``certain''; it means
sufficient to provide a reasonable degree of confidence in the
prediction. Thus, a prediction is reliable if it is reasonable to
depend on it when making decisions.
It is not always possible or necessary to define foreseeable future
as a particular number of years. Analysis of the foreseeable future
uses the best scientific and commercial data available and should
consider the timeframes applicable to the relevant threats and to the
species' likely responses to those threats in view of its life-history
characteristics. Data that are typically relevant to assessing the
species' biological response include species-specific factors such as
lifespan, reproductive rates or productivity,
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certain behaviors, and other demographic factors.
In conducting our evaluation of the five factors provided in
section 4(a)(1) of the Act to determine whether the Sonoran desert
tortoise meets the definition of an endangered species or a threatened
species, we considered and thoroughly evaluated the best scientific and
commercial information available regarding the past, present, and
future stressors and threats. We reviewed the petition, information
available in our files, and other available published and unpublished
information. Our evaluation may include information from recognized
experts; Federal, State, and Tribal governments; academic institutions;
foreign governments; private entities; and other members of the public.
The species assessment form for the species contains more detailed
biological information, a thorough analysis of the listing factors, a
list of literature cited, and an explanation of why we determined that
the species does not meet the Act's definition of an endangered species
or a threatened species. A thorough review of the taxonomy, life
history, ecology, and stressors to the Sonoran desert tortoise is
presented in the species status assessment report (USFWS 2021, entire).
This supporting information can be found on the internet at https://www.regulations.gov under Docket No. FWS-R2-ES-2021-0153. The following
is an informational summary for the finding in this document.
Previous Federal Actions
On December 30, 1982, the Service published in the Federal Register
(47 FR 58454) a notice of review that determined the desert tortoise
(Gopherus agassizii) throughout its range in the United States and
Mexico to be a Category 2 candidate species. Category 2 candidate
species were taxa for which the Service had in its possession
information that indicated that proposing to list the species as
endangered or threatened was possibly appropriate, but for which
substantial biological data were not available to support a proposed
rule. On April 2, 1990, we published in the Federal Register (55 FR
12178) a final rule designating the Mojave population of the desert
tortoise (occurring north and west of the Colorado River) as a
threatened species under the Act. Currently, the Mojave population of
the desert tortoise is recognized as a distinct population segment
(DPS) under the Act.
On October 15, 2008, we received a petition dated October 9, 2008,
from WildEarth Guardians and Western Watersheds Project (petitioners)
requesting that the Sonoran population of the desert tortoise be listed
under the Act as a distinct population segment (DPS) and that the DPS
be listed as endangered or threatened range-wide (in the United States
and Mexico). The petitioners also requested that critical habitat be
designated for the DPS. On August 28, 2009, we published in the Federal
Register (74 FR 44335) our 90-day finding that the petition presented
substantial scientific information indicating that listing the Sonoran
population of the desert tortoise may be warranted. That document also
initiated a status review of the Sonoran population of the desert
tortoise.
On December 14, 2010, we published in the Federal Register (75 FR
78094) our 12-month finding that listing the Sonoran DPS of the desert
tortoise was warranted, but precluded by other higher priority actions,
and the entity was added to our list of candidate species. In 2012, new
information was assessed that elevated the Sonoran population of the
desert tortoise to a full species (Gopherus morafkai). We noted this
taxonomic change in the 2012 candidate notice of review (CNOR) and
revised its accepted nomenclature to ``Sonoran desert tortoise'' (77 FR
69994; November 21, 2012). We also reaffirmed its candidate status in
the CNORs published in 2012 (77 FR 69994; November 21, 2012), 2013 (78
FR 70104; November 22, 2013), and 2014 (79 FR 72450; December 5, 2014),
reaffirming that it was warranted for listing but remained precluded by
higher priority actions. After completing a species status assessment,
we published in the Federal Register (80 FR 60321; October 6, 2015) a
12-month petition finding that listing the Sonoran desert tortoise as
endangered or threatened under the Act was not warranted.
The petitioners filed a complaint on September 5, 2019, challenging
our 2015 not-warranted finding for the Sonoran desert tortoise and
alleging violations of the Act. We reached a settlement agreement with
the petitioners that was approved by the U.S. District Court on August
3, 2020, to reconsider our not-warranted finding and to develop a new
12-month finding as to whether the Sonoran desert tortoise warrants
listing as an endangered or threatened species under the Act. As a
result of that agreement, we returned the Sonoran desert tortoise to
the candidate list (see 85 FR 73164; November 16, 2020). This document
constitutes our new 12-month finding.
Summary of Finding
The Sonoran desert tortoise occurs in the Sonoran Desert ecoregion
of Arizona in the United States and Sonora in Mexico. It is patchily
distributed across a large range that covers roughly 68,600 square
miles (177,673 square kilometers). Adapted to arid environments,
Sonoran desert tortoises spend most of their time in below-ground
shelter-sites, with emergence timed to resource availability such as
precipitation or forage. Precipitation, particularly the summer
monsoons, encourages new vegetative growth that is consumed by Sonoran
desert tortoises. Typical habitat consists of rocky slopes and incised
washes that support shelter sites. The amount and distribution of this
habitat is important to maintain the species' viability.
We have carefully assessed the best scientific and commercial
information available regarding the past, present, and future threats
to the Sonoran desert tortoise, and we evaluated all relevant factors
under the five listing factors, including any regulatory mechanisms and
conservation measures addressing these threats. We identified several
threats that could reduce the viability of the species. Some, such as
nonnative vegetation and altered wildfire regimes, have the potential
to affect the Sonoran desert tortoise on localized scales and the best
available information suggests these threats are unlikely to affect
long-term viability of the species. Human development can degrade or
remove Sonoran desert tortoise habitat and contribute to reduced
survival rates due to human-tortoise interactions and incidental
mortality. Suitable Sonoran desert tortoise habitat in portions of the
species' range, particularly in Arizona, has been converted to human
development. Drought has a measurable effect on the Sonoran desert
tortoise's survival rates and may become more frequent and severe into
the future due to climate change. Changes in precipitation and
temperature patterns may also affect the amount and suitability of
Sonoran desert tortoise habitat. Several Federal, State, and county
agencies have been implementing conservation measures through best
management practices, specific to the Sonoran desert tortoise, to help
sustain the species and its habitat where possible.
Currently, we estimate that the Sonoran desert tortoise occupies
much of its historical range and is abundant in Arizona and Sonora, on
the order of hundreds of thousands of extant adults. Population
monitoring data collected for approximately 20 to 30 years on 17 plots
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located on Bureau of Land Management (BLM) land in portions of the
species' range in Arizona have not indicated substantial declines or
extirpations. Habitat modeling indicates an estimated 49,222 square
miles (127,484 square kilometers) of suitable Sonoran desert tortoise
habitat occurs in Arizona and Sonora, with 24 percent of that
considered high suitability. In Arizona, 29 percent of the species'
range is on publicly-owned lands managed specifically for the benefit
of wildlife, including the Sonoran desert tortoise.
Upon examining the current trends and a range of future scenarios,
we expect that human development and climate change will have the
greatest impact on the Sonoran desert tortoise's viability due to its
effects on habitat and survival rates. Urban expansion may result in
the loss of Sonoran desert tortoise habitat, and adult survival rates
have been shown to decrease in proximity to urban areas. Drought, a
primary stressor shown to result in population crashes over abbreviated
time frames, significantly reduces survival rates and may become more
common and severe with climate change. The amount and distribution of
habitat may also shift due to changes in precipitation and temperature
patterns driven by climate change. In our species status assessment
report, we modeled these effects to project Sonoran desert tortoise
population trends into the future (USFWS 2021, pp. 59-71).
Even with the projected effects of urban expansion and climate
change, ample amounts of habitat capable of supporting Sonoran desert
tortoises are expected to remain by the end of the century. Although
declines in survival are anticipated near urban areas, we found these
effects are not enough to significantly reduce viability of the species
as a whole, and the affected areas only cover a relatively small
portion of the species' range (17 percent). Our modeling projects that
future drought is expected to result in a negative growth rate by the
end of century and likely declines in overall abundance. The magnitude
of these declines varies depending on the assumptions of future
environmental changes. However, our modeling indicates that the risk of
quasi-extinction by end of century is less than 1 percent regardless of
the scenario. Due to high current estimated population sizes and a
large area of suitable habitat, even with the projected declines, we
anticipate the Sonoran desert tortoise will continue to occupy the
majority of currently suitable habitat in sufficient numbers such that
the species maintains viability. After evaluating the best available
scientific and commercial information on potential threats acting
individually or in combination, we find that Sonoran desert tortoise
populations are expected to maintain resiliency, redundancy, and
representation in the foreseeable future throughout all or a
significant portion of the species' range.
Our review of the best available scientific and commercial
information regarding the past, present, and future threats to the
species indicates that the Sonoran desert tortoise is not in danger of
extinction nor likely to become endangered within the foreseeable
future throughout all or a significant portion of its range and does
not meet the definition of an endangered species or a threatened
species under the Act. Therefore, we find that listing the Sonoran
desert tortoise as an endangered or threatened species under the Act is
not warranted at this time. A detailed discussion of the basis for this
finding can be found in the Sonoran desert tortoise species assessment
form, which outlines in more detail the rationale for our decision, and
the revised species status assessment report (USFWS 2021, entire), and
other supporting documents (see ADDRESSES, above), which capture the
scientific information upon which our decision was based.
New Information
We request that you submit any new information concerning the
taxonomy of, biology of, ecology of, status of, or stressors to the
Sonoran desert tortoise to the person listed above under FOR FURTHER
INFORMATION CONTACT, whenever it becomes available. New information
will help us monitor this species and make appropriate decisions about
its conservation and status. We encourage local agencies and
stakeholders to continue cooperative monitoring and conservation
efforts.
References Cited
A list of the references cited in this document is available on the
internet at https://www.regulations.gov under Docket No. FWS-R2-ES-
2021-0153 in the species assessment form, or upon request from the
person listed above under FOR FURTHER INFORMATION CONTACT.
Authors
The primary authors of this document are the staff members of the
Species Assessment Team, Ecological Services Program.
Authority
The authority for this action is section 4 of the Endangered
Species Act of 1973, as amended (16 U.S.C. 1531 et seq.).
Martha Williams,
Principal Deputy Director, Exercising the Delegated Authority of the
Director, U.S. Fish and Wildlife Service.
[FR Doc. 2022-02422 Filed 2-7-22; 8:45 am]
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