Endangered and Threatened Wildlife and Plants; Revised Designation of Critical Habitat for the Contiguous United States Distinct Population Segment of the Canada Lynx, 8616-8702 [E9-3512]
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Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
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).
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 https://
www.regulations.gov and at https://
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
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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.
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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 humancaused 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.
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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;
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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).
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.
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.
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
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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
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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
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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 fireproduced 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
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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
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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.
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(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
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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
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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
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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
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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, longterm 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,
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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, nonFederal 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
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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 widelydisseminated 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, nongovernment 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
https://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.
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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
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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
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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
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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
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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
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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.
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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
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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
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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 OkanoganWenatchee in Washington State,
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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
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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 ‘‘selfsustaining population’’ in the proposed
rule, and why definitions for ‘‘selfsustaining 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
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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
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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
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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
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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.
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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.
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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
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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
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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
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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 thirdparty-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
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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
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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 nonmotorized 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 postdesignation 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 precommercial 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
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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 precommercial thinning jobs. Additionally,
reductions in pre-commercial thinning
levels are baseline lynx conservation
efforts; no further reductions in precommercial 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 nonlynx-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. Postdesignation 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 precommercial 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
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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 precommercial thinning management tool
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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 precommercial 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 lynxrelated 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
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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
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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 unpermitted 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
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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
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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
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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 nonferrous 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
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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
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habitat. Second, the IRFA only
considers the administrative costs of reopening 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
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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
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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-theground 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
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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
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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.
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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
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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
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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
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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
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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 northcentral 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).
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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
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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
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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
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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,
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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 mixedwood 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
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8637
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 tipup 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
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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
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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
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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.
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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.
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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
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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
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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
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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
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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
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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
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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,
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8641
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 selfsustaining 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.
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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 wideranging 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:
https://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
for designation
km2 (mi2)
Critical habitat units
Unit 1: Maine .......................................................................
Unit 2: Minnesota ................................................................
Unit 3: Northern Rocky Mountains (MT and ID) .................
Unit 4: North Cascades .......................................................
Unit 5: Greater Yellowstone Area .......................................
Total .............................................................................
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.
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Unit 1: Northern Maine—24,597 km2
(9,497 mi2)
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)
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Excluded area
km2 (mi2)
27,539.1
(10,632.9)
21,305.4
(8,226.1)
29,276.5
(11,303.7)
5,179.7
(1,999.9)
27,427.4
(10,589.8)
2,884.0
(1,113.5)
202.6
(78.2)
956.6
(369.4)
424.7
(164.0)
0
(0)
Private, State, Federal .........
110,728.1
(42,752.4)
4,467.9
(1,725.1)
..............................................
..............................................
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;
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Fmt 4701
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Federal, Private, State .........
Federal, Private, State .........
Federal, Private ....................
Federal, State, Private .........
Area designated km2
(mi2)
24,597.5
(9,497.2)
20,888.4
(8,065.1)
26,162.9
(10,101.6)
4,755.0
(1,835.9)
24,606.1
(9,500.5)
101,009.9
(39,000.3)
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
km2 (8,065 mi2)
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,
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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 habitatrelated 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
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GAP data, which is based on 10–15year-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 km2 (10,102 mi2)
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 km2 (1,836
mi2)
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
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8643
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
km2 (9,500 mi2)
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
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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
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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
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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
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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
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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).
Phone
number
State
Address
MAINE .........................................................................
MINNESOTA ...............................................................
MONTANA ..................................................................
WASHINGTON AND IDAHO ......................................
WYOMING ..................................................................
1168 Main Street, Old Town, Maine 04468 ..........................................
4101 East 80th Street, Bloomington, Minnesota 55425 .......................
585 Shepard Way, Helena, Montana 59601 .........................................
11103 E. Montgomery Drive, Spokane, Washington 99206 .................
5353 Yellowstone Road, 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.
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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
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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
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(207)
(612)
(406)
(509)
(307)
827–5938
725–3548
449–5225
893–8015
772–2374
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.
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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
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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
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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 longterm 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,
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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
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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 nonFederal 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 wellintentioned 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
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8647
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
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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
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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-toGovernment 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
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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-togovernment 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
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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)
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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 longterm 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 nonFederal lands in the core areas, develop
and implement best management
practices and long-term management
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8649
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 midregeneration 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 coniferdominated 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.
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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
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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
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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.
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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 lynxspecific 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
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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
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8651
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),
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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-ofthe-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
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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
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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,
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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 longterm 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 nonFederal 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
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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
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8653
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
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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
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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.
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• 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
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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
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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
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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,
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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.
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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.
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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.
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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.
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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
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Management Plan for DNR-managed
Lands (WDNR LHMP) encompasses
126,212 ac (197 mi2) (51,076 ha/511
km2) 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 nonhabitat 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).
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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.,
https://wdfw.wa.gov/wlm/diversty/soc/
recovery/lynx/lynx.htm, https://
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
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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.
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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
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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
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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 https://mountainprairie.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
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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,
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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 developmentrelated 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.
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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
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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 nonFederal entities receiving Federal
funding, assistance, or permits, or
otherwise requiring approval or
authorization from a Federal agency for
VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
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 20year 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
PO 00000
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Fmt 4701
Sfmt 4700
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 longrange 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 https://mountain-prairie.fws.gov/
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designation. Please refer to our
discussion of Tribal lands under the
Relationship of Critical Habitat to Tribal
Lands section of this final rule.
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
References Cited
A complete list of all references cited
in this rulemaking is available on the
Web site https://mountainprairie.fws.gov/species/mammals/lynx/
or upon request from the Field
Supervisor, Montana Field Office (see
ADDRESSES).
PART 17—[AMENDED]
1. The authority citation for part 17
continues to read as follows:
■
Authority: 16 U.S.C. 1361–1407; 16 U.S.C.
1531–1544; 16 U.S.C. 4201–4245; Pub. L. 99–
625, 100 Stat. 3500; unless otherwise noted.
2. In § 17.11(h), revise the entry for
‘‘Lynx, Canada’’ under ‘‘MAMMALS’’ to
read as follows:
List of Subjects in 50 CFR Part 17
Endangered and threatened species,
Exports, Imports, Reporting and
recordkeeping requirements,
Transportation.
■
Regulation Promulgation
*
Species
Vertebrate population where endangered or threatened
Historic range
Common name
Accordingly, we amend part 17,
subchapter B of chapter I, title 50 of the
Code of Federal Regulations, as set forth
below:
■
Scientific name
§ 17.11 Endangered and threatened
wildlife.
Status
*
*
(h) * * *
*
When listed
*
Critical
habitat
Special
rules
MAMMALS
*
Lynx, Canada ..........
*
*
Lynx canadensis .....
*
*
3. In § 17.95(a), revise the entry for
‘‘Canada lynx (Lynx canadensis)’’ to
read as follows:
■
§ 17.95
Critical habitat—fish and wildlife.
jlentini on PROD1PC65 with RULES2
(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;
VerDate Nov<24>2008
16:33 Feb 24, 2009
*
U.S.A. (AK, CO, ID,
ME, MI, MN, MT,
NH, NY, OR, UT,
VT, WA, WI, WY),
Canada,
circumboreal.
Jkt 217001
*
CO, ID, ME, MI,
MN, MT, NH, NY,
OR, UT, VT, WA,
WI, WY.
*
692
*
*
*
T
*
(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;
PO 00000
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*
17.95(a)
17.40(k)
*
(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:
E:\FR\FM\25FER2.SGM
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(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
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8662
jlentini on PROD1PC65 with RULES2
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
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E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
8664
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
5057359) (442021, 5057004) (441986,
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5038507) (452000, 5038494) (452350,
5038304) (452314, 5037847) (452223,
5038114) (452076, 5038079) (452055,
5037821) (451776, 5037795) (451481,
5037982) (451484, 5038247) (451241,
5038143) (450913, 5037060) (450962,
5036787) (450832, 5036930) (441411,
5035282) (417146, 5030512) (384373,
5024506) (383437, 5029672) (371909,
5028020) (372165, 5028506) (372935,
5028684) (373102, 5028943) (372871,
5029353) (372216, 5029644) (372008,
5030132) (372076, 5030422) (372348,
5030434) (372638, 5030980) (372494,
5031605) (372036, 5031727) (371662,
5032138) (371482, 5032428) (371528,
5032725) (371243, 5032896) (370911,
5033701) (369961, 5033836) (369049,
5034503) (368545, 5034557) (368505,
5035634) (367848, 5035843) (367670,
5036151) (367743, 5037073) (367173,
VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
5037564) (366748, 5037581) (365871,
5038428) (365771, 5038860) (366243,
5039588) (366278, 5040129) (365998,
5040431) (365436, 5040667) (365465,
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5053289) (374739, 5053723) (375538,
5054156) (375977, 5054202) (376060,
5054559) (376567, 5055171) (376606,
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5069927) (419599, 5070170) (419572,
5070421) (420652, 5071115) (420832,
5071517) (421153, 5071693) (420522,
PO 00000
Frm 00050
Fmt 4701
Sfmt 4700
5071847) (420517, 5071968) (420901,
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E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
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5226814) (506066, 5226270) (506663,
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5224918) (507911, 5225446) (508928,
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5226324) (511365, 5226986) (512762,
5227834) (514271, 5229088) (514820,
5229115) (516552, 5229751) (517841,
5229866) (518782, 5230349) (520105,
5231389) (520425, 5231389) (521416,
5231934) (522244, 5231636) (522875,
5231985) (522882, 5227037) (536315,
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5222586) (548937, 5221725) (553209,
5218889) (553381, 5218050) (555386,
5217069) (556379, 5216306) (556711,
VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
5215783) (557953, 5215089) (559110,
5213240) (560037, 5210947) (561053,
5210517) (562360, 5209394) (562522,
5197585) (553279, 5197227) (553501,
5167376) (572577, 5168197) (572903,
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5092367) (516125, 5091625) (516726,
5091316) (517122, 5090636) (518287,
5089320) (518905, 5088839) (520105,
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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,
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5080634) (486711, 5080406) (486496,
5080580) (486496, 5080310) (485946,
5080384) (486844, 5080142) (487174,
PO 00000
Frm 00051
Fmt 4701
Sfmt 4700
8665
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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)
E:\FR\FM\25FER2.SGM
25FER2
8666
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
jlentini on PROD1PC65 with RULES2
(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)
VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
(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,
PO 00000
Frm 00052
Fmt 4701
Sfmt 4700
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:
E:\FR\FM\25FER2.SGM
25FER2
VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
PO 00000
Frm 00053
Fmt 4701
Sfmt 4700
E:\FR\FM\25FER2.SGM
25FER2
8667
ER25FE09.001</GPH>
jlentini on PROD1PC65 with RULES2
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
8668
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
jlentini on PROD1PC65 with RULES2
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,
VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
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, 5330162) (595926,
5329808) (596521, 5329713) (597235,
5330023) (597370, 5330422) (598026,
5330703) (597681, 5329545) (598254,
5329153) (599201, 5329215) (599371,
5329070) (599601, 5329605) (600254,
5329831) (600186, 5329383) (600603,
5329015) (601262, 5327952) (603112,
5328580) (605013, 5328604) (606035,
5329108) (607207, 5329329) (607693,
5328750) (606518, 5327703) (606131,
5324696) (606340, 5323702) (606105,
5322709) (606724, 5322150) (608598,
5323271) (612565, 5324962) (614319,
5324860) (615491, 5325057) (615741,
5324835) (615713, 5324520) (616401,
5323228) (616374, 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,
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5335858) (640200, 5336476) (641747,
5337232) (642477, 5338131) (643069,
5338010) (643749, 5338224) (643980,
5338674) (644233, 5338706) (644450,
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5339349) (660823, 5338248) (661135,
5337857) (661722, 5338254) (661607,
5338986) (661963, 5339111) (662239,
5338534) (662802, 5338585) (663237,
5338393) (663511, 5336789) (663842,
5336357) (664097, 5336587) (664315,
PO 00000
Frm 00054
Fmt 4701
Sfmt 4700
5336439) (664639, 5336564) (664927,
5336963) (665226, 5336898) (665357,
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5333862) (664100, 5333689) (664974,
5333783) (664890, 5333439) (664540,
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5305934) (732056, 5306311) (731604,
5305961) (731070, 5305917) (730937,
E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
5305606) (730619, 5305523) (730417,
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5261377) (651948, 5261147) (650810,
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5258980) (648177, 5257914) (647221,
5257724) (647053, 5257170) (646297,
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5254684) (644268, 5253968) (643625,
5252952) (643384, 5252976) (642874,
5252680) (641651, 5251681) (641162,
5251161) (641235, 5251019) (641009,
5250585) (640869, 5250617) (640438,
5250238) (640471, 5250074) (640199,
5249928) (640179, 5249690) (639735,
5249122) (639188, 5248993) (639051,
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5247834) (637903, 5246978) (637732,
5246616) (637804, 5246442) (637559,
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5245325) (637079, 5244475) (636824,
5244556) (636279, 5244263) (635513,
5243372) (635393, 5242647) (635066,
5242086) (634444, 5242004) (634161,
VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
5241416) (633871, 5241372) (633838,
5240844) (633077, 5240515) (632994,
5240087) (632513, 5239319) (632683,
5238693) (632452, 5238343) (632235,
5238314) (632278, 5238062) (631608,
5237722) (631785, 5238026) (631561,
5238340) (631020, 5237537) (630563,
5237201) (630319, 5236258) (629660,
5236280) (629444, 5236112) (629067,
5235472) (629361, 5235267) (628251,
5234781) (627598, 5233961) (627687,
5233852) (627460, 5233880) (626714,
5233116) (626508, 5232318) (626061,
5232077) (626096, 5231961) (625786,
5231937) (625792, 5231665) (625338,
5231424) (625341, 5231177) (624707,
5230577) (624692, 5229958) (624445,
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PO 00000
Frm 00055
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8669
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E:\FR\FM\25FER2.SGM
25FER2
8670
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
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5296788) (549355, 5297045) (549076,
BILLING CODE 4310–55–P
(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, 5440417) (157217,
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5434172) (160723, 5433948) (160290,
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5429458) (152325, 5429500) (152608,
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VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
PO 00000
Frm 00056
Fmt 4701
Sfmt 4700
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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,
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5243061) (623327, 5243035) (623340,
5241425) (621725, 5241388) (621690,
5244578) (620112, 5244552) (620214,
5238106).
(iii) Map of Unit 2, Northeastern
Minnesota, follows:
E:\FR\FM\25FER2.SGM
25FER2
ER25FE09.002</GPH>
jlentini on PROD1PC65 with RULES2
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the island polygons bounded by the
following coordinates: (546982,
jlentini on PROD1PC65 with RULES2
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
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VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
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(iii) Polygon bounded by the
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5423248) (186518, 5422900) (186038,
5422623) (185049, 5422489) (184855,
5422160) (186618, 5421235) (186962,
5420884) (186956, 5420425) (186383,
E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
8672
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
5419177) (185583, 5418531) (185283,
5417637) (184754, 5417620) (183534,
5417995) (182845, 5417956) (182090,
5418222) (182592, 5417652) (183534,
5417053) (183787, 5416549) (183768,
5416249) (182762, 5415475) (182371,
5413951) (181912, 5413485) (180661,
5414349) (180709, 5413749) (180449,
5413469) (180913, 5413131) (181041,
5412428) (181367, 5412227) (181419,
5411518) (182619, 5409501) (182550,
5409094) (181471, 5409040) (179027,
5410147) (178481, 5411774) (177870,
5412659) (178119, 5411243) (177879,
5410488) (177084, 5410712) (176819,
5410444) (175370, 5410758) (175032,
5410700) (174714, 5410838) (174604,
5411399) (174433, 5411482) (174154,
5411046) (173940, 5410971) (173768,
5411075) (173696, 5411693) (173330,
5411244) (173059, 5411283) (172778,
5411423) (172698, 5412022) (172201,
5412305) (171700, 5413122) (171486,
5412158) (171925, 5411401) (171982,
5410966) (171612, 5410857) (170770,
5411261) (170384, 5411055) (171430,
5409724) (171946, 5409826) (172194,
5409506) (173405, 5409563) (173760,
5409391) (173903, 5408965) (174457,
5409252) (174485, 5409469) (174914,
5409341) (175137, 5409012) (175337,
5409194) (175522, 5409137) (175772,
5408611) (176114, 5408738) (176544,
5408068) (176780, 5406867) (177449,
5408496) (178254, 5407982) (178828,
5408025) (179178, 5407861) (179652,
5407078) (180057, 5407164) (180528,
5406655) (180775, 5406718) (181221,
5406388) (181363, 5405775) (181179,
5405458) (181222, 5404882) (181420,
5404354) (181098, 5404199) (180807,
5403649) (180904, 5403340) (180447,
5403136) (180539, 5402676) (180380,
5402418) (180374, 5401700) (180052,
5401943) (179507, 5402861) (179561,
5401476) (179444, 5401187) (178780,
5401310) (178260, 5401181) (177988,
5401559) (177818, 5401312) (177410,
5401489) (177245, 5401303) (176735,
5401289) (177186, 5400832) (177834,
5400615) (178270, 5400165) (178633,
5400232) (179072, 5400053) (179218,
5399424) (178791, 5399048) (178772,
5398802) (177848, 5399003) (178295,
5398124) (177239, 5397791) (176795,
5398082) (176844, 5397365) (175969,
5396769) (176334, 5396594) (177508,
5397002) (178444, 5396877) (178470,
5395971) (178261, 5395508) (178358,
5395170) (178599, 5395554) (178864,
5395397) (179003, 5396019) (179375,
5396414) (179906, 5396461) (179729,
5397080) (180126, 5397339) (180880,
5396009) (181427, 5395828) (181672,
5395555) (181745, 5395170) (182205,
5395246) (182631, 5394990) (182385,
5393523) (183464, 5393833) (184053,
5393327) (184456, 5392247) (183900,
VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
5391898) (184227, 5391382) (184180,
5390755) (184635, 5390650) (185390,
5391130) (185927, 5390377) (187265,
5389193) (187246, 5389021) (186928,
5388948) (186838, 5388441) (186479,
5388502) (186169, 5388315) (186188,
5387922) (185811, 5387284) (185286,
5387887) (184610, 5387721) (184178,
5388687) (183023, 5388991) (182771,
5389300) (182374, 5388795) (182827,
5387868) (182649, 5387298) (182166,
5387675) (181260, 5387641) (180544,
5388499) (180346, 5387960) (180164,
5387876) (178408, 5388150) (178192,
5388741) (178066, 5388755) (177933,
5386424) (179068, 5385822) (179574,
5385742) (179653, 5385575) (179519,
5385370) (178933, 5385258) (177359,
5385541) (177073, 5385351) (176263,
5385489) (176136, 5383253) (176344,
5383364) (177897, 5382808) (178139,
5382621) (178094, 5382178) (179152,
5381908) (180653, 5380977) (180521,
5379993) (179348, 5380357) (179168,
5380969) (178829, 5381242) (178227,
5380878) (177634, 5381004) (177644,
5380491) (177492, 5380335) (176389,
5380865) (176246, 5381350) (175661,
5380731) (174729, 5380599) (175887,
5380177) (176909, 5379072) (175894,
5379024) (175783, 5377045) (176824,
5377210) (176835, 5376969) (176635,
5376804) (176755, 5376342) (177278,
5376851) (177822, 5376874) (178141,
5377092) (178818, 5376830) (178466,
5376897) (177478, 5376385) (177363,
5375364) (176605, 5375268) (175893,
5376416) (173950, 5377572) (174216,
5378335) (174354, 5379941) (173636,
5380307) (173444, 5380726) (172691,
5380739) (171193, 5381190) (171235,
5380777) (170943, 5380055) (171059,
5379917) (169637, 5379999) (169794,
5380174) (169281, 5380455) (169177,
5381125) (169223, 5382186) (169500,
5382457) (169297, 5382623) (169429,
5382884) (168962, 5383622) (168536,
5382919) (168062, 5383013) (168048,
5383987) (167829, 5384486) (168410,
5385147) (169180, 5385212) (169252,
5385602) (169000, 5385810) (169078,
5385973) (169623, 5386002) (169912,
5385774) (169901, 5386476) (169654,
5386405) (169315, 5386719) (169473,
5387103) (169166, 5387090) (168628,
5386760) (168459, 5386967) (167974,
5387115) (168277, 5386801) (168219,
5386444) (167727, 5386421) (167388,
5386719) (167443, 5387529) (167270,
5387879) (167040, 5387846) (166859,
5388329) (167579, 5388573) (167726,
5388935) (167222, 5388804) (166915,
5389108) (166695, 5389060) (166443,
5389246) (165937, 5388935) (165681,
5389114) (165529, 5389502) (165148,
5389635) (165085, 5389855) (162228,
5390040) (162140, 5388614) (162618,
5388572) (162678, 5388236) (162275,
PO 00000
Frm 00058
Fmt 4701
Sfmt 4700
5387665) (162724, 5387544) (162634,
5387183) (162886, 5387044) (162390,
5386451) (162744, 5386270) (163154,
5386314) (163166, 5385881) (162814,
5386014) (162565, 5385443) (162912,
5384712) (163198, 5384564) (163156,
5384187) (162500, 5383935) (162325,
5384384) (162068, 5384180) (161811,
5384370) (161643, 5384792) (161872,
5385583) (161491, 5385661) (161194,
5386475) (160754, 5386248) (160621,
5386499) (160933, 5387757) (159866,
5387213) (159699, 5387358) (159574,
5388101) (159185, 5388608) (158913,
5388201) (159014, 5388072) (158910,
5387523) (158373, 5387400) (158432,
5387003) (158848, 5386576) (159154,
5386524) (158561, 5386089) (158692,
5385800) (159205, 5385540) (159298,
5384946) (158815, 5383900) (158870,
5383370) (158199, 5383417) (158088,
5383294) (158118, 5383004) (158877,
5382629) (158349, 5382487) (158297,
5382225) (157190, 5382421) (157253,
5382787) (157562, 5383074) (157371,
5383694) (157064, 5383389) (156772,
5383510) (156725, 5384124) (157066,
5384760) (156945, 5384944) (156640,
5384890) (156587, 5385370) (156850,
5385741) (156479, 5385920) (156442,
5386678) (156559, 5386849) (156394,
5387177) (155345, 5387243) (155264,
5387102) (155550, 5386838) (155536,
5386327) (155427, 5384949) (155152,
5383986) (154720, 5384618) (154404,
5384044) (154072, 5384047) (153832,
5384554) (153613, 5384723) (153445,
5384498) (153043, 5385138) (152758,
5384963) (152342, 5385414) (152128,
5385381) (151656, 5386277) (150590,
5385842) (150857, 5385671) (150613,
5385298) (151323, 5385428) (151621,
5385098) (151621, 5384797) (151920,
5384649) (152038, 5384101) (152414,
5383740) (152334, 5383023) (153011,
5383154) (153229, 5382474) (153507,
5382603) (153758, 5382188) (153650,
5381925) (154151, 5381705) (153801,
5381274) (153426, 5381099) (153483,
5380673) (154701, 5380517) (154768,
5380305) (154538, 5379957) (154637,
5379527) (155457, 5378595) (155374,
5378378) (155225, 5378366) (155131,
5378737) (154955, 5378793) (154691,
5378499) (154499, 5378494) (154391,
5378135) (154039, 5377868) (153648,
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5377917) (152278, 5378779) (152307,
5379226) (151924, 5379340) (151705,
5379245) (151665, 5378947) (151352,
5378640) (151362, 5378097) (151189,
5378030) (150660, 5378303) (150671,
5378728) (149925, 5378632) (149806,
5379802) (149425, 5380299) (149772,
5380512) (149849, 5380922) (149444,
5380721) (149005, 5380916) (148530,
5380640) (148543, 5380097) (148002,
5379274) (147663, 5380038) (147181,
E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
5380330) (147086, 5380656) (146665,
5380669) (146228, 5380038) (146471,
5379356) (146322, 5379105) (145402,
5378841) (145426, 5378323) (144511,
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5380747) (143713, 5381448) (144062,
5381686) (144221, 5382284) (144919,
5382616) (145517, 5382535) (145396,
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5384586) (141921, 5384927) (141903,
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5386350) (141821, 5386514) (141446,
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5388466) (140778, 5388507) (140845,
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5388845) (142473, 5389060) (142732,
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5389225) (146226, 5389263) (146523,
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5389665) (146108, 5389718) (146019,
5390080) (145574, 5389820) (144835,
5389976) (144852, 5390181) (145319,
5390616) (145486, 5391282) (144650,
5390688) (144378, 5391292) (144192,
5390685) (144256, 5390409) (144009,
5390200) (143740, 5390230) (143397,
5390847) (143081, 5390292) (142756,
5390347) (142511, 5390607) (142532,
5390910) (142250, 5390989) (142473,
5391514) (142940, 5391718) (142349,
5392084) (141956, 5392062) (141661,
5391764) (141515, 5391800) (141385,
5392222) (140919, 5392691) (140832,
5393391) (141281, 5393826) (141683,
5393806) (141652, 5394014) (141168,
5394305) (140725, 5394033) (140340,
5394304) (140604, 5394856) (140206,
5395339) (140205, 5396234) (140721,
5396281) (140938, 5396745) (141583,
5396518) (141893, 5396625) (142044,
5397013) (142394, 5396854) (142553,
5396962) (143487, 5396894) (143757,
5396562) (144256, 5396773) (144607,
5396740) (144645, 5397073) (144054,
5397357) (144101, 5397925) (143603,
5397673) (143043, 5398214) (142792,
5398086) (142165, 5398447) (142108,
5398625) (142345, 5398998) (142213,
VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
5399521) (142664, 5399524) (142982,
5399701) (142588, 5400456) (142830,
5400859) (142703, 5401230) (143628,
5401808) (144044, 5401477) (144076,
5400911) (144419, 5400763) (144600,
5400383) (144942, 5400894) (145114,
5399628) (145679, 5400689) (146252,
5400309) (146441, 5400784) (147723,
5400111) (147098, 5398860) (148460,
5399259) (148723, 5398887) (148760,
5398436) (149238, 5398304) (149097,
5397787) (149862, 5397936) (150289,
5397610) (150630, 5397736) (151371,
5397585) (152000, 5397943) (152180,
5398676) (152019, 5398921) (151804,
5398871) (151580, 5399081) (151262,
5398878) (151023, 5399007) (150493,
5399825) (150275, 5399726) (150119,
5399892) (150055, 5400440) (150512,
5400831) (151483, 5400533) (152491,
5401026) (152697, 5401400) (152976,
5401504) (153149, 5401400) (153357,
5401897) (152920, 5401669) (152478,
5401685) (152124, 5401402) (151889,
5401569) (151399, 5401378) (150582,
5401634) (150528, 5401819) (150894,
5402577) (150500, 5402581) (150352,
5402997) (150083, 5402261) (149865,
5402173) (149656, 5402609) (149360,
5402654) (149281, 5401947) (148835,
5401721) (148578, 5402907) (148841,
5403335) (148515, 5403395) (148153,
5402999) (148029, 5402498) (147781,
5402498) (147160, 5403199) (147379,
5403695) (147292, 5403936) (147044,
5403849) (146822, 5403969) (146393,
5403623) (146203, 5403884) (145922,
5403763) (145604, 5404325) (145286,
5404115) (144884, 5404374) (144443,
5404121) (143671, 5404259) (143816,
5405036) (143756, 5405794) (144041,
5405903) (144605, 5405795) (145429,
5405446) (145185, 5406261) (144874,
5406150) (144387, 5406552) (144102,
5407050) (143486, 5406890) (143175,
5407144) (143113, 5408160) (143261,
5408359) (143980, 5408560) (144300,
5408417) (144985, 5408701) (145155,
5408403) (145702, 5408241) (145797,
5409162) (146168, 5409557) (146941,
5409481) (147161, 5409154) (147340,
5409516) (147678, 5409220) (147900,
5409359) (148529, 5409307) (149015,
5408794) (148852, 5409334) (149294,
5409758) (148974, 5409600) (148138,
5409700) (147316, 5410354) (146888,
5410283) (146386, 5410487) (146325,
5411131) (146756, 5411579) (146241,
5411629) (145747, 5411151) (145413,
5411182) (145416, 5410811) (144818,
5410399) (144500, 5410568) (144239,
5410317) (143588, 5410474) (142494,
5410042) (142305, 5411013) (142004,
5411048) (141756, 5411371) (141932,
5412021) (141672, 5412165) (141003,
5412080) (140239, 5412877) (140299,
5413656) (140063, 5413925) (139533,
5413988) (139368, 5414514) (139922,
PO 00000
Frm 00059
Fmt 4701
Sfmt 4700
8673
5415189) (140768, 5415598) (141405,
5415682) (141431, 5416062) (141217,
5416296) (141617, 5416687) (143423,
5417154) (143955, 5416792) (145100,
5417017) (145356, 5416825) (145870,
5416846) (146114, 5416428) (146037,
5415971) (146422, 5416006) (146389,
5415375) (146550, 5415164) (146712,
5415688) (147129, 5415769) (146908,
5416028) (146891, 5416782) (147551,
5416793) (147645, 5416964) (147450,
5417552) (147642, 5417959) (147407,
5418369) (148344, 5418787) (148798,
5418319) (148793, 5417992) (149066,
5417998) (149561, 5417506) (149378,
5417006) (149757, 5416717) (149839,
5416459) (149746, 5416014) (149943,
5415456) (149887, 5414888) (150463,
5415024) (150664, 5414224) (150599,
5413470) (150799, 5413636) (151067,
5413593) (151182, 5413906) (151500,
5414098) (151326, 5414292) (151345,
5415315) (151799, 5416756) (152450,
5416434) (152856, 5415759) (152912,
5415101) (153152, 5414866) (153438,
5414998) (153763, 5414144) (154214,
5414486) (154197, 5414940) (154447,
5415161) (154495, 5415594) (154899,
5416150) (155101, 5416206) (155322,
5415905) (155588, 5414769) (155694,
5413556) (155418, 5413186) (155776,
5412931) (155918, 5412029) (155367,
5411570) (155164, 5411660) (154251,
5411175) (154033, 5411306) (154037,
5410914) (154203, 5410720) (153958,
5409866) (154171, 5408583) (154058,
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5407942) (154719, 5407557) (154719,
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5409654) (155317, 5410090) (155621,
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5410204) (156662, 5410339) (156622,
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5409845) (157874, 5408863) (157869,
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5409569) (159553, 5409665) (159485,
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5410334) (158921, 5410770) (158972,
5411233) (159654, 5411495) (159058,
5411964) (159399, 5412630) (159012,
5412902) (159132, 5413436) (158890,
5413848) (159015, 5413875) (159175,
5413610) (159751, 5413656) (159960,
5414093) (159917, 5414367) (160487,
5414895) (161328, 5415016) (161056,
5415302) (160372, 5415413) (160064,
5415718) (159828, 5415650) (159766,
E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
8674
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
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5436276).
VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
(iv) Polygon bounded by the following
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PO 00000
Frm 00060
Fmt 4701
Sfmt 4700
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E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
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VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
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PO 00000
Frm 00061
Fmt 4701
Sfmt 4700
8675
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E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
8676
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
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5343896) (212235, 5344277) (211945,
5344208) (211950, 5344416) (211010,
5345539) (211050, 5345858) (211712,
5345980) (212042, 5346462) (212038,
5346231) (212553, 5346667) (212913,
5346639) (213300, 5346970) (213329,
5347239) (212804, 5347480) (212587,
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5353113) (211242, 5353199) (211324,
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VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
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PO 00000
Frm 00062
Fmt 4701
Sfmt 4700
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E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
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VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
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PO 00000
Frm 00063
Fmt 4701
Sfmt 4700
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E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
8678
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
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E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
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E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
8680
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
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5205003) (296069, 5204612) (295988,
5204094) (296413, 5203734) (296349,
VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
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PO 00000
Frm 00066
Fmt 4701
Sfmt 4700
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E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
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VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
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PO 00000
Frm 00067
Fmt 4701
Sfmt 4700
8681
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E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
8682
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
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5305559) (316349, 5305864) (315393,
5306459) (315262, 5306863) (314706,
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5308096) (314029, 5308183) (313710,
5308398) (313779, 5308703) (313471,
5309134) (313366, 5308393) (313143,
5308323) (312626, 5309320) (312680,
5309706) (312929, 5309701) (312688,
5310304) (313064, 5310230) (313131,
5310514) (313439, 5310356) (312788,
5311236) (313856, 5311876) (314176,
5312282) (314400, 5312160) (315437,
5312553) (316409, 5312210) (317326,
5312230) (317787, 5312069) (317885,
5311460) (318742, 5311044) (319516,
5310927) (319649, 5310539) (319688,
5310744) (321225, 5310529) (319683,
5311161) (318922, 5311175) (318244,
5311616) (318134, 5311550) (318168,
5312103) (318337, 5312135) (317750,
5312555) (316847, 5312877) (316800,
5312970) (317299, 5313031) (317183,
5313245) (315974, 5314054) (315739,
5313791) (315605, 5314264) (315407,
5313769) (315539, 5313551) (314748,
5313608) (314608, 5314248) (314160,
5314580) (314303, 5314810) (314223,
5315090) (313742, 5315407) (313641,
5315668) (312823, 5316163) (313020,
5316480) (312945, 5316735) (314209,
5317148) (314488, 5317439) (314504,
VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
5317700) (314164, 5317236) (312891,
5316874) (312779, 5316482) (311963,
5316335) (311658, 5316528) (311610,
5317177) (311511, 5316788) (311003,
5316908) (310652, 5317615) (310245,
5317963) (309000, 5318231) (310365,
5319270) (311043, 5320392) (311294,
5321300) (310910, 5320364) (310314,
5319656) (309511, 5319093) (309062,
5318884) (308891, 5318956) (308551,
5319964) (308092, 5320490) (308041,
5320808) (308178, 5320873) (307918,
5321440) (308039, 5321958) (307644,
5322584) (307591, 5323030) (307352,
5323020) (306955, 5323327) (306660,
5323716) (306114, 5324050) (306120,
5324201) (305711, 5324232) (305662,
5324440) (305295, 5324562) (304936,
5325023) (304867, 5325625) (303135,
5326311) (302807, 5326582) (302714,
5326779) (302828, 5326993) (303063,
5326983) (302840, 5327195) (302627,
5327082) (302548, 5327527) (302799,
5327645) (303013, 5327532) (302484,
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5330312) (301315, 5330232) (300836,
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5335566) (300157, 5335996) (300419,
5336140) (299975, 5336094) (299660,
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5352046) (293354, 5352262) (292676,
5352488) (292143, 5353079) (291928,
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5353567) (291539, 5354587) (291269,
5354444) (291111, 5354564) (290696,
5355102) (290776, 5355429) (290542,
5355428) (290219, 5355788) (289978,
PO 00000
Frm 00068
Fmt 4701
Sfmt 4700
5354975) (290067, 5354095) (289890,
5354038) (289979, 5353686) (289723,
5353040) (289859, 5352514) (289207,
5351809) (288804, 5351827) (288166,
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5364978) (278760, 5365282) (278703,
5366595) (278424, 5367305) (278775,
E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
5368174) (278490, 5368592) (278620,
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5349156) (307466, 5348954) (308070,
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5348531) (308753, 5348020) (309097,
5347889) (308834, 5346779) (309343,
5346623) (309061, 5346144) (309137,
5345736) (309387, 5345449) (309467,
5345643) (309287, 5346029) (309449,
5345983) (309384, 5346296) (309535,
5346720) (309369, 5346761) (309508,
5346944) (309105, 5348073) (308159,
5349186) (307242, 5349217) (306929,
5349574) (307438, 5350323) (307359,
5350565) (307734, 5350596) (308403,
5350176) (309554, 5350881) (308790,
5350613) (308419, 5350628) (307949,
5350958) (307320, 5350845) (307583,
5351106) (307860, 5351136) (307680,
5352097) (307533, 5352132) (306780,
5353481) (307233, 5353994) (307224,
VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
5354216) (307645, 5354364) (307986,
5354951) (308755, 5354903) (309710,
5355166) (311353, 5356568) (311975,
5357498) (311026, 5357108) (309482,
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5376546) (295769, 5377238) (296699,
5377837) (298210, 5379232) (299549,
5381438) (297572, 5379579) (296565,
5378812) (295676, 5378436) (295139,
PO 00000
Frm 00069
Fmt 4701
Sfmt 4700
8683
5377958) (294469, 5376895) (293824,
5376662) (293241, 5376792) (292466,
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5376730) (288652, 5377257) (288179,
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E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
8684
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
5404470) (291505, 5404571) (289114,
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VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
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PO 00000
Frm 00070
Fmt 4701
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E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
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VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
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PO 00000
Frm 00071
Fmt 4701
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E:\FR\FM\25FER2.SGM
25FER2
8686
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
jlentini on PROD1PC65 with RULES2
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VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
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5184035) (348549, 5184582) (349154,
5185854) (349356, 5186755) (352291,
5185545) (353879, 5184126) (354386,
5186198) (354377, 5187871) (355288,
5188953) (355398, 5188632) (356922,
5187832) (357993, 5186542).
(x) Map of Unit 3, Northern Rocky
Mountains, follows:
BILLING CODE 4310–55–P
E:\FR\FM\25FER2.SGM
25FER2
VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
PO 00000
Frm 00073
Fmt 4701
Sfmt 4700
E:\FR\FM\25FER2.SGM
25FER2
8687
ER25FE09.003</GPH>
jlentini on PROD1PC65 with RULES2
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
jlentini on PROD1PC65 with RULES2
8688
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
(8) Unit 4: North Cascades; Chelan
and Okanogan Counties, Washington.
(i) Coordinate Projection: UTM,
NAD83, Zone 11, Meters. Coordinate
Definition: (easting, northing).
(ii) Polygon bounded by the following
coordinates: (239064, 5432329) (238496,
5430989) (238302, 5430996) (238270,
5430456) (237707, 5430517) (237259,
5430317) (236754, 5429705) (236835,
5429367) (236342, 5429208) (236345,
5428870) (236229, 5428831) (236544,
5428756) (237137, 5429537) (237176,
5429806) (239232, 5430709) (239382,
5430915) (239476, 5430696) (239344,
5430438) (239667, 5429882) (239498,
5430526) (239624, 5430680) (239546,
5431800) (239836, 5432293) (240094,
5432301) (240013, 5432464) (240301,
5433596) (277837, 5431840) (289213,
5431440) (289203, 5431218) (289597,
5431194) (289549, 5429980) (290340,
5429962) (290074, 5421926) (293294,
5421803) (292993, 5413808) (285580,
5414099) (285568, 5413700) (285162,
5413715) (284999, 5409261) (285808,
5409231) (285547, 5402800) (286337,
5402823) (286159, 5397155) (288401,
5397077) (288344, 5396247) (291556,
5396144) (291485, 5394505) (293928,
5394435) (293858, 5392837) (296268,
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5387262) (295862, 5387400) (295718,
5387674) (295732, 5388035) (296313,
5388390) (296097, 5388659) (296497,
5389122) (295338, 5388657) (295279,
5389042) (294636, 5389313) (294396,
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5390868) (293536, 5390932) (293116,
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5387583) (293951, 5387556) (294135,
5387400) (294119, 5387047) (294341,
5387022) (294477, 5386806) (294387,
VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
5386536) (293472, 5386406) (293191,
5385784) (293813, 5385693) (294277,
5385185) (294938, 5385309) (294966,
5385173) (294431, 5384724) (294598,
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5383459) (294324, 5383159) (294195,
5382674) (293665, 5382669) (293204,
5383022) (292917, 5382672) (292066,
5383305) (291831, 5383285) (291544,
5383865) (291811, 5384464) (291328,
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5383428) (290353, 5384081) (290394,
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5385841) (289976, 5385826) (289930,
5384542) (289733, 5384880) (289800,
5385156) (289459, 5385353) (288978,
5384396) (288741, 5383346) (288494,
5383550) (288317, 5384747) (287857,
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5384668) (287615, 5383312) (287517,
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5383517) (286359, 5383746) (286168,
5383537) (285796, 5383491) (286283,
5382927) (286306, 5382301) (286932,
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5382147) (285575, 5382196) (285771,
5381773) (285667, 5381625) (286018,
5381093) (285625, 5380857) (285830,
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5379917) (286110, 5379625) (286472,
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5379611) (288172, 5379254) (288935,
5378541) (289062, 5377676) (289376,
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5363208) (284260, 5362765) (283848,
5362726) (283728, 5362491) (283188,
5362346) (283078, 5362663) (281890,
5362755) (282252, 5363107) (282147,
5363525) (282551, 5364374) (281801,
5363969) (281633, 5364104) (281753,
5364596) (281557, 5364752) (281557,
5364469) (281285, 5364534) (281213,
5363779) (280789, 5363448) (280797,
5362923) (280358, 5363144) (280795,
PO 00000
Frm 00074
Fmt 4701
Sfmt 4700
5363782) (280644, 5364438) (280385,
5364352) (280216, 5363985) (279590,
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5365584) (279035, 5365466) (278791,
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E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
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5396401) (271876, 5396924) (272572,
5396893) (272045, 5397328) (271577,
5398150) (272724, 5398068) (273204,
VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
5398112) (273435, 5398300) (273744,
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5398360) (274798, 5398507) (275386,
5399053) (274671, 5398833) (273591,
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5416342) (278110, 5415924) (277866,
5414506) (278081, 5413156) (278040,
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5396966) (264797, 5397409) (264575,
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PO 00000
Frm 00075
Fmt 4701
Sfmt 4700
8689
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5386498) (257558, 5385960) (257976,
5385589) (257840, 5385251) (257972,
5384706) (257728, 5384074) (257291,
5384271) (257093, 5384102) (256649,
5384888) (256179, 5385003) (255348,
5385767) (254837, 5385797) (255417,
5386446) (254964, 5386543) (254943,
E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
8690
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
5386842) (254654, 5386808) (254489,
5387738) (254054, 5387032) (253726,
5387066) (253601, 5386776) (253098,
5386697) (252774, 5387166) (253303,
5387687) (253178, 5388297) (252935,
5388561) (252573, 5388290) (252374,
5388685) (252477, 5389160) (252884,
5389520) (252946, 5389894) (252675,
5389821) (252454, 5389986) (252750,
5390733) (252861, 5391797) (253915,
5392689) (253957, 5392976) (254296,
5393241) (254631, 5393860) (254972,
5395404) (254422, 5394411) (254252,
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5392829) (252741, 5393278) (252809,
5392750) (251900, 5391671) (251432,
5391880) (251366, 5392227) (250950,
5392481) (251110, 5391475) (251542,
5391052) (250963, 5390654) (250837,
5390224) (250335, 5390173) (249568,
5390336) (249490, 5390489) (249307,
5390332) (248789, 5390482) (246851,
5390564) (246295, 5390925) (245855,
5391626) (246267, 5392154) (245840,
5392031) (245558, 5392217) (245427,
5392140) (245143, 5392608) (246053,
5393633) (246491, 5394506) (246294,
5394370) (246028, 5394824) (245948,
5394258) (245194, 5393310) (244718,
5393340) (244455, 5393636) (244473,
5393944) (244260, 5394036) (244061,
5394966) (243810, 5395063) (243385,
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5396477) (243608, 5396890) (243512,
5397235) (243593, 5397773) (243950,
5397893) (243631, 5398096) (243591,
5398388) (243858, 5398875) (243749,
5399695) (243967, 5399862) (243908,
5400088) (244257, 5400798) (244828,
5401059) (244698, 5401228) (244759,
5401603) (245264, 5402106) (246113,
5402232) (246355, 5402636) (246931,
5402013) (246975, 5402393) (246727,
5402740) (246687, 5403214) (246869,
5403437) (247558, 5403607) (248059,
5404391) (248475, 5404190) (248890,
5403678) (248344, 5404908) (248512,
5405050) (248783, 5404905) (249308,
5404991) (248959, 5405167) (249944,
5406650) (250250, 5407622) (250758,
5407894) (251209, 5409360) (250672,
5409089) (250446, 5409270) (250211,
5409661) (250031, 5410656) (249347,
5411644) (249278, 5412059) (250132,
5413271) (249227, 5416045) (249104,
5416046) (249113, 5415603) (250060,
5413230) (249925, 5412978) (249155,
5412520) (249028, 5411944) (249205,
5411318) (249805, 5410519) (249923,
5409865) (249828, 5409647) (250064,
5409318) (250337, 5408288) (249817,
5407962) (249082, 5406370) (249140,
5406164) (248757, 5405621) (248404,
5405673) (248004, 5405427) (247729,
5404829) (247293, 5404575) (247151,
5404020) (246537, 5404058) (246384,
5404682) (245874, 5405595) (245853,
5406298) (245679, 5406635) (245579,
VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
5404972) (246130, 5403778) (246072,
5403262) (245820, 5403198) (245636,
5402924) (245305, 5402934) (245245,
5402732) (244902, 5402836) (244733,
5402420) (244234, 5402206) (243401,
5401393) (243124, 5400747) (242922,
5400702) (242736, 5400788) (242501,
5401331) (242355, 5402509) (242688,
5403327) (242359, 5404547) (241469,
5405979) (241173, 5406097) (241110,
5406387) (240417, 5406719) (241161,
5405728) (241386, 5404755) (241668,
5404559) (242023, 5403806) (242084,
5403435) (241554, 5401719) (241737,
5401019) (241589, 5400767) (241963,
5400591) (241874, 5400239) (242065,
5400135) (242072, 5399865) (242608,
5399834) (242258, 5398726) (242026,
5398485) (242138, 5398325) (242006,
5397703) (241438, 5396780) (240981,
5396460) (241070, 5395997) (240734,
5396017) (240027, 5396569) (240072,
5397119) (239916, 5397600) (239634,
5398018) (239314, 5398084) (239211,
5398997) (238804, 5399500) (237367,
5400442) (237087, 5400430) (237827,
5399407) (238343, 5399065) (238605,
5398649) (238796, 5397050) (237951,
5396108) (237448, 5396292) (237415,
5395768) (236915, 5395347) (236579,
5395370) (235987, 5396180) (235608,
5396261) (236250, 5394739) (235901,
5394069) (235045, 5394186) (234718,
5394799) (233328, 5395591) (232118,
5397030) (232941, 5395472) (233980,
5394617) (234076, 5394349) (231960,
5394907) (229484, 5394287) (228254,
5394291) (227139, 5394647) (226582,
5394278) (228541, 5393427) (228851,
5393072) (229030, 5393308) (230148,
5393588) (230619, 5393526) (230830,
5393302) (231125, 5393747) (232006,
5393833) (233608, 5393369) (233906,
5393188) (233941, 5392995) (234334,
5393218) (234872, 5393160) (235149,
5392942) (235408, 5393055) (235912,
5392970) (236034, 5392811) (236338,
5393180) (236948, 5393300) (237812,
5393423) (238144, 5393207) (238225,
5393913) (239123, 5394756) (239308,
5394765) (239740, 5394130) (241737,
5392895) (242082, 5392335) (241936,
5391676) (242736, 5391778) (243431,
5391095) (243650, 5390512) (243453,
5390202) (243974, 5389987) (244098,
5389658) (244358, 5389484) (244289,
5388846) (243806, 5388732) (243648,
5388538) (243171, 5388765) (242954,
5388188) (242687, 5388646) (241612,
5389482) (241139, 5389569) (240582,
5389937) (240422, 5389728) (239688,
5389665) (239431, 5389817) (238758,
5389725) (237493, 5389913) (235093,
5389657) (234672, 5389499) (233455,
5388560) (231897, 5387071) (232019,
5386174) (231679, 5385332) (232081,
5384997) (232216, 5384541) (232970,
5386585) (233842, 5387798) (234814,
PO 00000
Frm 00076
Fmt 4701
Sfmt 4700
5388468) (235704, 5388395) (235778,
5388552) (237057, 5388736) (237524,
5388501) (237654, 5388592) (237902,
5388422) (239035, 5388296) (239418,
5387672) (239554, 5387944) (239818,
5387945) (241443, 5386779) (241457,
5386124) (241972, 5386360) (243049,
5385827) (243247, 5385213) (243096,
5384495) (242717, 5384209) (241748,
5384109) (241455, 5383861) (243067,
5383789) (243954, 5384315) (244418,
5383791) (244202, 5384985) (244289,
5385293) (244504, 5385347) (244470,
5385794) (244787, 5385811) (245064,
5386109) (245469, 5386110) (245941,
5385758) (246454, 5386066) (246794,
5386060) (247100, 5385928) (247311,
5385568) (247984, 5385476) (248045,
5385131) (248638, 5384648) (248508,
5384346) (248035, 5384446) (247572,
5384326) (248336, 5383516) (248170,
5383405) (248145, 5383065) (247781,
5382968) (247702, 5382596) (248502,
5382712) (248998, 5382956) (248808,
5382144) (249663, 5382309) (249928,
5381734) (249827, 5381491) (250246,
5381268) (250485, 5381434) (250562,
5382084) (250744, 5382205) (250566,
5382530) (250704, 5382938) (251274,
5382649) (251604, 5382198) (251641,
5381839) (251469, 5381565) (251686,
5381486) (251718, 5381260) (252012,
5381322) (252097, 5380914) (252658,
5380484) (252359, 5380140) (251653,
5380022) (251506, 5379856) (251855,
5379576) (252960, 5379356) (252926,
5379226) (252162, 5378962) (252031,
5378805) (252191, 5378566) (252350,
5378547) (252393, 5378322) (252852,
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5378041) (253518, 5378089) (253746,
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5377718) (255031, 5377353) (255475,
5376841) (255585, 5376246) (255529,
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5376487) (253872, 5377037) (253595,
5376971) (253642, 5376660) (253469,
5376533) (252724, 5376294) (252234,
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5377145) (251257, 5377018) (250825,
5377238) (250309, 5376856) (249778,
5377339) (250162, 5376652) (251069,
5376737) (251830, 5375938) (251364,
5376023) (251361, 5375583) (251205,
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5375219) (248262, 5374735) (249526,
5374609) (249751, 5374432) (250791,
5374526) (251480, 5374238) (251817,
5374636) (252354, 5374281) (252300,
5374841) (252543, 5375117) (253017,
5374964) (253081, 5375276) (253848,
5375266) (254199, 5375139) (254186,
5374848) (254640, 5374497) (255041,
5374743) (255368, 5374439) (255333,
5373987) (254674, 5373683) (254006,
5373673) (254468, 5373122) (254441,
E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
5372670) (254669, 5372679) (254894,
5372934) (255444, 5372409) (255880,
5372492) (255539, 5371916) (255687,
5371591) (256514, 5371903) (257007,
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5371232) (249703, 5371492) (249989,
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5370022) (249945, 5369625) (250083,
5369530) (249938, 5369370) (250645,
5369389) (250616, 5369150) (250172,
5368977) (250252, 5368544) (250432,
5368645) (250905, 5368537) (251079,
5368206) (251032, 5367832) (250756,
5367364) (250541, 5367539) (250247,
5367388) (250513, 5367229) (250555,
5366978) (250927, 5366937) (250962,
5366744) (251290, 5366538) (251387,
5365999) (250804, 5366319) (250634,
5366124) (250728, 5365736) (250488,
5365516) (250173, 5365365) (249712,
5365432) (250809, 5365035) (251222,
5365141) (251514, 5364809) (249754,
5364603) (250483, 5363974) (250454,
5363652) (250812, 5363793) (251070,
5363566) (251013, 5363208) (250609,
5363382) (250418, 5362764) (249623,
5363483) (249460, 5362840) (249336,
5362876) (248851, 5363794) (248457,
5364013) (248471, 5364330) (248149,
5364659) (247875, 5364456) (247631,
5364481) (247317, 5364810) (247431,
VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
5365208) (246797, 5365269) (246284,
5365866) (246236, 5366157) (245859,
5366110) (245183, 5366690) (245194,
5367295) (244860, 5367460) (244726,
5367795) (244475, 5367034) (244209,
5367059) (243319, 5367670) (243323,
5367975) (243012, 5368031) (242747,
5368396) (242600, 5369339) (241881,
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5370446) (241138, 5370409) (240725,
5370628) (240364, 5371280) (240175,
5371146) (239761, 5371364) (237738,
5372835) (237230, 5373473) (237015,
5374343) (236756, 5373835) (234508,
5374123) (234215, 5373974) (235144,
5373695) (235446, 5373051) (236369,
5372590) (237697, 5370981) (237566,
5370679) (236148, 5370295) (235713,
5369896) (238170, 5370163) (239238,
5369382) (239429, 5368929) (239916,
5368439) (240538, 5368357) (241138,
5367327) (240622, 5366819) (240001,
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5366575) (241986, 5366085) (242027,
5365863) (242768, 5365463) (242503,
5364974) (243359, 5365065) (244889,
5363924) (245487, 5363220) (245499,
5362957) (245323, 5362827) (245598,
5362683) (245598, 5362494) (246326,
5361706) (246167, 5361551) (245150,
5361743) (244130, 5361723) (243444,
5362044) (243104, 5362041) (244371,
5361187) (244098, 5360582) (244865,
5361085) (245292, 5361033) (245871,
5360599) (247015, 5360756) (246705,
5359542) (246361, 5358963) (246573,
5358921) (246636, 5358730) (247136,
5359153) (247740, 5360120) (248430,
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5358724) (251427, 5359183) (251673,
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5359622) (253214, 5360194) (253563,
5359325) (253990, 5359412) (254034,
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5355947) (253351, 5357259) (254476,
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5354802) (254994, 5354450) (255318,
5354553) (256052, 5355751) (256769,
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5355591) (256873, 5355587) (256029,
5356866) (256526, 5356875) (256510,
5357295) (256711, 5357472) (256417,
5357728) (256403, 5358002) (257045,
5357966) (257170, 5358087) (256958,
5358394) (257177, 5358724) (257451,
5358552) (258122, 5358558) (258558,
5358788) (258473, 5359047) (258848,
5359101) (259160, 5359518) (259536,
PO 00000
Frm 00077
Fmt 4701
Sfmt 4700
8691
5359674) (259649, 5359503) (259259,
5359202) (259300, 5359031) (259064,
5358893) (258874, 5358280) (258628,
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5348561) (261243, 5348329) (261187,
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5346661) (261817, 5346533) (261704,
5346260) (261455, 5346448) (261097,
5346354) (261087, 5346799) (260827,
5347106) (260465, 5347263) (260178,
E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
8692
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
5347189) (260390, 5347539) (259795,
5347847) (259716, 5348010) (259850,
5348254) (259554, 5348586) (259274,
5348313) (258479, 5349113) (258369,
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5337967) (262034, 5338730) (262020,
5338072) (261633, 5337698) (261440,
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5336769) (260377, 5336750) (259932,
5336502) (260486, 5336249) (260263,
5336073) (260466, 5336004) (260400,
5335813) (260795, 5335445) (261533,
5335557) (261841, 5334999) (262255,
5335162) (262178, 5334839) (261683,
5334575) (261534, 5334187) (260854,
5334178) (260872, 5333534) (260958,
5333369) (261467, 5333560) (261835,
5333107) (261786, 5332790) (262311,
5332445) (262363, 5332093) (262530,
5333377) (262742, 5333445) (263020,
5333114) (263415, 5333538) (263436,
5333103) (263621, 5332950) (264395,
5333169) (264268, 5332774) (264632,
5332282) (264828, 5332385) (264916,
5332265) (264622, 5331993) (264732,
5331826) (264653, 5331474) (265030,
5330964) (264974, 5330700) (265688,
5331086) (265624, 5330898) (266209,
5330427) (266159, 5329864) (266549,
5329769) (266211, 5329191) (266773,
5329097) (266751, 5328638) (266962,
VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
5328618) (267051, 5328333) (267405,
5328338) (267596, 5328138) (268242,
5328202) (268396, 5328062) (268451,
5327875) (267920, 5326941) (268211,
5326948) (268209, 5326724) (267804,
5326402) (268462, 5326181) (268261,
5325448) (268470, 5325065) (268422,
5324595) (268576, 5324478) (269188,
5324300) (270184, 5324861) (270250,
5324164) (270633, 5324205) (270416,
5323626) (270810, 5323187) (271087,
5323472) (271359, 5323344) (271636,
5323853) (271891, 5323636) (272630,
5324199) (272527, 5323576) (272631,
5323320) (272387, 5322917) (272904,
5323023) (273008, 5323213) (273239,
5323084) (273340, 5323475) (274180,
5323765) (274368, 5323582) (274232,
5322811) (274594, 5322750) (274633,
5322392) (274951, 5322516) (275429,
5322287) (275679, 5322433) (275801,
5322953) (276547, 5323064) (276516,
5323327) (276891, 5323314) (276734,
5323799) (276360, 5324102) (276541,
5324542) (276312, 5324941) (276613,
5325399) (276541, 5325978) (276748,
5325995) (277110, 5325342) (277610,
5325488) (277620, 5325211) (277977,
5325100) (278053, 5324796) (277800,
5324504) (277925, 5324215) (278285,
5324064) (278159, 5323575) (278404,
5323465) (278219, 5323035) (278846,
5322754) (278416, 5322485) (278759,
5322020) (278708, 5321810) (278894,
5321504) (278781, 5320885) (278352,
5321687) (277984, 5321457) (278121,
5321207) (277927, 5320736) (277586,
5320826) (277279, 5320495) (277061,
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5321261) (276613, 5321246) (276373,
5321109) (276243, 5320596) (275996,
5320394) (275498, 5320530) (275201,
5319969) (274938, 5320126) (274711,
5320038) (274726, 5320478) (274913,
5320729) (274812, 5320851) (274987,
5321108) (274726, 5321070) (274712,
5321460) (274375, 5320945) (273922,
5321169) (273952, 5320677) (273505,
5320826) (273602, 5320385) (273393,
5320247) (273010, 5320436) (272883,
5320272) (272656, 5320360) (272514,
5320654) (272418, 5320460) (272069,
5320497) (271888, 5320361) (272330,
5320183) (272285, 5319993) (272491,
5320020) (272486, 5319711) (272846,
5319623) (272743, 5319192) (273151,
5319324) (273347, 5319249) (273156,
5318983) (273671, 5318996) (273423,
5318409) (273915, 5318336) (274031,
5318148) (273772, 5317576) (273205,
5317720) (273064, 5318115) (272505,
5317728) (272264, 5317742) (272137,
5318027) (272000, 5317709) (272271,
5317347) (272088, 5316946) (272177,
5316576) (271971, 5316475) (271299,
5316722) (270639, 5315901) (270467,
5315918) (270406, 5316167) (270713,
PO 00000
Frm 00078
Fmt 4701
Sfmt 4700
5316612) (270644, 5316902) (270137,
5316679) (269790, 5316731) (270041,
5317065) (269811, 5317177) (270467,
5317724) (270610, 5318302) (270386,
5318281) (270247, 5318478) (270037,
5318059) (269597, 5318200) (269281,
5318490) (269273, 5318696) (269603,
5319187) (268952, 5319073) (268789,
5319331) (268536, 5318680) (268030,
5318760) (268206, 5318270) (267818,
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5319037) (267022, 5318954) (266751,
5318629) (266590, 5318774) (266242,
5318646) (266169, 5318769) (266731,
5319381) (266759, 5319751) (266448,
5319585) (266354, 5319707) (266127,
5319626) (266013, 5319903) (265822,
5319925) (265435, 5319806) (265329,
5319578) (264912, 5319694) (265017,
5320013) (266190, 5320309) (266069,
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5322510) (267239, 5322961) (267083,
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5326658) (259935, 5326217) (259598,
5326264) (259808, 5325884) (259693,
5325442) (259509, 5325314) (259609,
E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
5325053) (259295, 5324644) (258522,
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5338322) (241874, 5338687) (242505,
5338672) (242538, 5338961) (243198,
5339205) (243033, 5339468) (243600,
5340339) (244767, 5340092) (245112,
5340233) (244311, 5340830) (244379,
5341149) (244073, 5341192) (243753,
5342057) (243754, 5343234) (244244,
5344545) (243114, 5343639) (242870,
5343173) (242959, 5342783) (242513,
5342134) (242749, 5341935) (242744,
5341583) (241915, 5340778) (240768,
5340551) (240341, 5340867) (240333,
5341377) (239438, 5341468) (239336,
5342002) (240262, 5342561) (239762,
5342865) (239786, 5343288) (239154,
5343188) (239282, 5344101) (239035,
5344278) (238584, 5344260) (238186,
5344597) (238954, 5344989) (239294,
5345434) (239031, 5345577) (238738,
VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
5345441) (238230, 5345546) (238212,
5345783) (237672, 5345804) (237230,
5346037) (237170, 5346276) (237829,
5346465) (237747, 5346754) (237354,
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5347426) (236652, 5348134) (236366,
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5350352) (238146, 5350422) (237035,
5351001) (237080, 5351682) (236593,
5351384) (236525, 5351088) (235332,
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5350625) (233873, 5350585) (233774,
5351102) (233255, 5351357) (233013,
5352026) (232681, 5353056) (233255,
5353352) (232747, 5353759) (232648,
5354176) (233000, 5354383) (233594,
5354332) (233389, 5354791) (233656,
5355085) (233729, 5355692) (232818,
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5361656) (230918, 5361937) (231249,
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5362560) (230863, 5362671) (230737,
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5362378) (229080, 5362677) (228974,
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5361655) (227266, 5362415) (227435,
5362551) (227274, 5362830) (227284,
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5363848) (227211, 5365832) (226650,
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5366512) (221149, 5366316) (220737,
5366793) (220471, 5366598) (219903,
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5366747) (219177, 5366854) (218502,
5366711) (217185, 5367328) (216973,
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5368928) (216109, 5368965) (215701,
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5370194) (216046, 5370508) (215400,
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5372275) (215271, 5372837) (215842,
5373305) (217129, 5373591) (217531,
5373312) (217886, 5373863) (218389,
5373978) (219141, 5373714) (219361,
5373820) (219573, 5373410) (219948,
5373942) (220810, 5374016) (221243,
5373720) (221526, 5373219) (221818,
5371554) (221669, 5370505) (222034,
5370108) (222403, 5372287) (222346,
5373340) (222019, 5374279) (224078,
5374312) (225354, 5374598) (226354,
5374055) (225731, 5374972) (226147,
PO 00000
Frm 00079
Fmt 4701
Sfmt 4700
8693
5375842) (226124, 5376748) (225719,
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5375132) (223504, 5375115) (221832,
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5373283) (212993, 5372821) (211759,
5372290) (211517, 5372341) (211523,
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5379491) (208089, 5379335) (208376,
5380321) (208295, 5381260) (208045,
E:\FR\FM\25FER2.SGM
25FER2
8694
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
jlentini on PROD1PC65 with RULES2
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(ix) Map of Unit 4, North Cascades,
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BILLING CODE 4310–55–P
E:\FR\FM\25FER2.SGM
25FER2
8695
BILLING CODE 4310–55–C
VerDate Nov<24>2008
16:44 Feb 24, 2009
Jkt 217001
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E:\FR\FM\25FER2.SGM
25FER2
ER25FE09.004</GPH>
jlentini on PROD1PC65 with RULES2
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
jlentini on PROD1PC65 with RULES2
8696
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
(9) Unit 5: Greater Yellowstone Area;
Gallatin, Park, Sweetgrass, Stillwater,
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Teton, Fremont, Sublette, and Lincoln
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E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
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VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
4836103) (619127, 4835622) (619161,
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4833373) (608403, 4833382) (608410,
4832983) (606801, 4832944) (606763,
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4803784) (592821, 4804227) (592038,
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4803441) (589526, 4803951) (589228,
PO 00000
Frm 00083
Fmt 4701
Sfmt 4700
8697
4803524) (589448, 4803208) (589497,
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E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
8698
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
4759339) (596534, 4759307) (596618,
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4715039) (514589, 4715045) (515426,
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4716842) (518137, 4716922) (518292,
4717595) (518735, 4717932) (518841,
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4722601) (517924, 4723977) (517602,
4724382) (517710, 4724673) (517476,
4724854) (517427, 4725607) (517060,
VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
4725924) (517194, 4726906) (517636,
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4728898) (518097, 4729329) (518307,
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PO 00000
Frm 00084
Fmt 4701
Sfmt 4700
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E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
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4897516) (554711, 4896946) (554964,
4896313) (554964, 4895806) (555471,
VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
4894539) (555471, 4893272) (555788,
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4952325) (546737, 4952811) (545461,
PO 00000
Frm 00085
Fmt 4701
Sfmt 4700
8699
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E:\FR\FM\25FER2.SGM
25FER2
jlentini on PROD1PC65 with RULES2
8700
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
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4977154) (555524, 4977121) (554584,
4977737) (554324, 4977154) (554065,
VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
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PO 00000
Frm 00086
Fmt 4701
Sfmt 4700
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E:\FR\FM\25FER2.SGM
25FER2
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
jlentini on PROD1PC65 with RULES2
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VerDate Nov<24>2008
16:33 Feb 24, 2009
Jkt 217001
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PO 00000
Frm 00087
Fmt 4701
Sfmt 4700
8701
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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
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Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 / Rules and Regulations
Dated: February 12, 2009.
Jane Lyder,
Assistant Deputy Secretary, Department of
the Interior.
[FR Doc. E9–3512 Filed 2–24–09; 8:45 am]
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]]>Agencies
[Federal Register Volume 74, Number 36 (Wednesday, February 25, 2009)]
[Rules and Regulations]
[Pages 8616-8702]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: E9-3512]
[[Page 8615]]
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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
Federal Register / Vol. 74, No. 36 / Wednesday, February 25, 2009 /
Rules and Regulations
[[Page 8616]]
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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
https://www.regulations.gov and at https://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
[[Page 8617]]
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
[[Page 8618]]
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
[[Page 8619]]
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 https://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
