Endangered and Threatened Wildlife and Plants; 90-Day Finding on a Petition To List the Coqui Llanero (Eleutherodactylus juanariveroi) as Endangered, 32510-32513 [E9-16065]
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Federal Register / Vol. 74, No. 129 / Wednesday, July 8, 2009 / Proposed Rules
Dated: June 25, 2009.
Marvin E. Moriarty,
Acting Director, U.S. Fish and Wildlife Service
[FR Doc. E9–16087 Filed 7–7– 09; 8:45 am]
BILLING CODE 4310–55–S
DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
50 CFR Part 17
[FWS–R4–ES–2009–0022; 92210–1117–000–
B4]
Endangered and Threatened Wildlife
and Plants; 90–Day Finding on a
Petition To List the Coqui Llanero
(Eleutherodactylus juanariveroi) as
Endangered
AGENCY: Fish and Wildlife Service,
Interior.
ACTION: Notice of petition finding and
initiation of status review.
SUMMARY: We, the U.S. Fish and
Wildlife Service (the Service), announce
a 90-day finding on a petition to list
coqui llanero (Eleutherodactylus
juanariveroi), a tree frog, as threatened
or endangered under the Endangered
Species Act of 1973, as amended (Act).
Following our review of the petition, we
find that it provides substantial
scientific or commercial information
indicating that listing this species may
be warranted. Therefore, with the
publication of this notice, we initiate a
status review to determine if listing the
coqui llanero is warranted. To ensure
that the status review is comprehensive,
we request scientific and commercial
data and other information regarding
this species. We will initiate a
determination on critical habitat for this
species if and when we initiate a listing
action.
DATES: We made the finding announced
in this document on July 8, 2009. To
allow us adequate time to conduct this
review, we request that information be
submitted on or before September 8,
2009.
You may submit
information by one of the following
methods:
• Federal eRulemaking Portal: https://
www.regulations.gov. Follow the
instructions for submitting comments.
• U.S. mail or hand-delivery: Public
Comments Processing, Attn: FWS–R4–
ES–2009–0022; Division of Policy and
Directives Management; U.S. Fish and
Wildlife Service; 4401 N. Fairfax Drive,
Suite 222, Arlington, VA 22203.
We will post all information we
receive on https://www.regulations.gov.
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ADDRESSES:
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This generally means that we will post
any personal information you provide
us (see the Information Solicited section
below for more details).
FOR FURTHER INFORMATION CONTACT:
˜
Edwin E. Muniz, Field Supervisor,
Caribbean Ecological Services Field
´
Office, P.O. Box 491, Boqueron, PR
00622; by telephone, (787) 851–7297; or
by facsimile, (787) 851–7440. Persons
who use a telecommunications device
for the deaf (TDD) may call the Federal
Information Relay Service (FIRS) at
800–877–8339.
SUPPLEMENTARY INFORMATION:
Information Solicited
When we make a finding that a
petition presents substantial
information indicating that listing a
species may be warranted, the Act (16
U.S.C. 1531 et seq.) requires us to
promptly commence a review of the
status of the species. To ensure that the
status review is complete and based on
the best available scientific and
commercial information, we seek
information on the coqui llanero. We
request information from the public,
other concerned governmental agencies,
Native American Tribes, the scientific
community, industry, or any other
interested parties concerning the status
of the coqui llanero. We seek
information regarding:
(1) The species’ historical and current
status and distribution, its biology and
ecology, and ongoing conservation
measures for the species and its habitat;
(2) Information relevant to the factors
that are the basis for our making any
listing determination for a species under
section 4(a) of the Act, which are:
(a) The present or threatened
destruction, modification, or
curtailment of the species’ habitat or
range;
(b) overutilization for commercial,
recreational, scientific, or educational
purposes;
(c) disease or predation;
(d) the inadequacy of existing
regulatory mechanisms; or
(e) other natural or manmade factors
affecting its continued existence and
threats to the species or its habitat; and
(3) Information on the effects of
climate change, sea-level change, and
water temperature change on the
distribution and abundance of the
species.
If we determine that listing the
species is warranted, we intend to
propose critical habitat to the maximum
extent prudent and determinable at the
time we propose the listing. Therefore,
with regard to areas within the
geographical range currently occupied
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by the coqui llanero, we also request
data and information on what may
constitute physical or biological features
essential to the conservation of the
species, where these features are
currently found, and whether any of
these features may require special
management considerations or
protection. In addition, we request data
and information regarding whether
there are areas outside the geographical
area occupied by the species that are
essential to the conservation of the
species. Please provide specific
comments and information as to what,
if any, critical habitat you think we
should propose for designation if the
species is proposed for listing, and why
such habitat meets the requirements of
the Act.
Please note that submissions merely
stating support for or opposition to the
action under consideration without
providing supporting information,
although noted, will not be considered
in making a determination, as section
4(b)(1)(A) of the Act (16 U.S.C. 1531 et
seq.) directs that determinations as to
whether any species is a threatened or
endangered species must be made
‘‘solely on the basis of the best scientific
and commercial data available.’’ Based
on the status review, we will issue a 12month finding on the petition, as
provided in section 4(b)(3)(B) of the Act.
You may submit your information
concerning this status review by one of
the methods listed in the ADDRESSES
section.
If you submit information via https://
www.regulations.gov, your entire
submission—including any personal
identifying information—will be posted
on the Web site. If your submission is
made via a hardcopy that includes
personal identifying information, you
may request at the top of your document
that we withhold your personal
information from public review.
However, we cannot guarantee that we
will be able to do so. We will post all
hardcopy comments on https://
www.regulations.gov.
Information and materials we receive,
as well as supporting documentation we
used in preparing this finding, will be
available for public inspection on https://
www.regulations.gov, or by
appointment, during normal business
hours, at the U.S. Caribbean Ecological
Services Field Office (see FOR FURTHER
INFORMATION CONTACT section).
Background
Section 4(b)(3)(A) of the Act requires
that we make a finding on whether a
petition to list, delist, or reclassify a
species presents substantial scientific or
commercial information indicating that
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the petitioned action may be warranted.
We are to base this finding on
information provided in the petition,
supporting information submitted with
the petition, and information otherwise
available in our files. To the maximum
extent practicable, we are to make this
finding within 90 days of our receipt of
the petition and publish our notice of
the finding promptly in the Federal
Register.
Our standard for substantial scientific
or commercial information within the
Code of Federal Regulations (CFR) with
regard to a 90-day petition finding is
‘‘that amount of information that would
lead a reasonable person to believe that
the measure proposed in the petition
may be warranted’’ (50 CFR 424.14(b)).
If we find that substantial scientific or
commercial information was presented,
we are required to promptly commence
a status review of the species.
On May 22, 2007, we received a
petition dated May 11, 2007, from the
Caribbean Primate Research Center
requesting that we list the coqui llanero
as endangered under the Act. The
petition also requested that we
designate critical habitat concurrently
with listing, if listing occurs. The
petition clearly identified itself as such
and included the requisite identification
information for the petitioners, as
required in 50 CFR 424.14(a). In a July
23, 2007, letter to the petitioners, we
responded that we had reviewed the
petition and determined that an
emergency listing was not necessary.
We also stated that we would not be
able to address the petition until
funding became available. Actions in
this petition were precluded by court
orders and settlement agreements for
other listing actions that required nearly
all of our listing funds for fiscal year
2007. However, in fiscal year 2008,
funding became available, enabling us
to address this petition. Accordingly,
this finding addresses the petition. On
January 22, 2009, we received an
amended petition dated January 13,
2008. The amended petition included
literature references published in 2007,
provided photographs and maps, and
updated information on current threats
to the species.
Species Information
´
Neftali Rios-Lopez and Richard
Thomas first collected the coqui llanero
(Eleutherodactylus juanariveroi), a tree
frog, in 2005 from a seasonally flooded
herbaceous wetland near the U.S. Naval
Security Group Activity Sabana Seca
(USNS–GASS) property and the
Caribbean Primate Research Center, Toa
Baja, Puerto Rico. The coqui llanero was
later described as a new species of the
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genus Eleutherodactylus, family
Leptodactylidae, in 2007. Although the
new species is similar to the
Eleutherodactylus gryllus, differences in
morphological ratios, body coloration,
frequency of calls, call structure, DNA,
and habitat association indicate that it is
´
a well-differentiated species (Rios-Lopez
and Thomas 2007, pp. 53–60; Caribbean
Primate Research Center 2007, p. 1;
Caribbean Primate Research Center
2008, p. 1). At the time of this
determination, this endemic Puerto
Rican tree frog is only known from this
´
type locality (Rios-Lopez and Thomas
2007, p. 60; Caribbean Primate Research
Center 2007, p. 1; Departamento de
Recursos Naturales y Ambientales
(DRNA) 2007a, p. 3; DRNA 2007b, p. 1;
Caribbean Primate Research Center
2008, p. 2). It is only known to occur in
the Sabana Seca-Ingenio Ward, Toa
Baja, a municipality of Puerto Rico
located on the northern coast, north of
´
Toa Alta and Bayamon; east of Dorado;
˜
and west of Catano, approximately 12
miles (20 kilometers) from San Juan.
The coqui llanero is the smallest
Puerto Rican Eleutherodactylus and is
the only known herbaceous-wetland
specialist in Puerto Rico within the
taxonomic genus Eleutherodactylus. It
has a mean snout-vent length of 14.7
millimeters (mm) (0.58 inches (in)) in
males, and 15.8 mm (0.62 in) in females.
The nares (nasal passages) are
prominent, and a ridge connects them
behind the snout tip, giving the tip a
somewhat squared-off appearance. The
species has well-developed glands
through its body; its dorsal coloration is
yellow to yellowish brown with a light,
longitudinal, reversed comma mark on
each side; and its mid-dorsal zone is
broadly bifurcated (divided into two
branches). The species’ communication
call consists of a series of short highpitched notes with call duration varying
from 4 to 21 seconds. The advertisement
call has the highest frequency among all
Puerto Rican Eleutherodactylus,
between 7.38 and 8.28 kilohertz. The
calling activity starts at approximately
4:30 p.m. and decreases significantly
before midnight. Egg clutches comprise
one to five eggs and are found on leaf
axils or leaf surfaces between 0.4 meters
(m) (1.3 feet (ft)) and 1.2 m (3.9 ft) above
´
water level (Rios-Lopez and Thomas
2007, pp. 53–62). Observers did not see
parental care in the field (Caribbean
Primate Research Center 2007, p. 3;
Caribbean Primate Research Center
2008, p. 5).
The coqui llanero is only known to
occur in the Sabana Seca-Ingenio Ward,
Toa Baja type locality, which consists of
approximately 180 hectares (ha) (444.8
acres (ac)) of seasonally flooded
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palustrine (marshy, non-tidal wetlands
substantially covered with emergent
vegetation such as trees, shrubs, and
moss, or fresh-water herbaceous
wetland), at 17 m (55.8 ft) above sea
´
level (Rios-Lopez and Thomas 2007, p.
60; Caribbean Primate Research Center
2007, p. 2). According to the petitioner,
the species’ habitat may represent a
relict of an endemic habitat type (Rios´
Lopez and Thomas 2007, p. 63). The
habitat is categorized as within the
subtropical moist forest life zone (Ewel
and Whitmore 1973, pp. 20–38). The
main vegetation in this herbaceous
wetland consists of toothed midsorus
fern (Blechnum serrulatum),
willdenow’s maiden fern (Thelypteris
interrupta), bulltongue arrowhead
(Sagittaria lancifolia), flat sedges
(Cyperus sp.), spike rushes (Eleocharis
sp.), and vines and grasses (Caribbean
Primate Research Center 2007, p. 2;
Caribbean Primate Research Center
2008, p. 2).
The majority of the individuals were
found perching and calling on the
toothed midsorus fern and willdenow’s
maiden fern. Reproduction, however,
only occurs on the bulltongue
arrowhead (Caribbean Primate Research
Center 2007, p. 2; Caribbean Primate
Research Center 2008, p. 4). All
specimens (45 individuals) were
collected while perching, sitting, or
calling on herbaceous vegetation,
mainly on ferns. Egg clutches were
found on leaf axils (21 egg clutches) or
leaf surfaces (3 egg clutches) of only S.
´
lancifolia (Rios-Lopez and Thomas
2007, p. 60).
Five-Factor Evaluation
Section 4 of the Act (16 U.S.C. 1533),
and its implementing regulations at 50
CFR part 424, set forth procedures for
adding species to the Federal List of
Endangered and Threatened Wildlife
and Plants. A species may be
determined to be an endangered or
threatened species due to one or more
of the five factors described in section
4(a)(1) of the Act: (A) The present or
threatened destruction, modification, or
curtailment of its habitat or range; (B)
overutilization for commercial,
recreational, scientific, or educational
purposes; (C) disease or predation; (D)
the inadequacy of existing regulatory
mechanisms; or (E) other natural or
manmade factors affecting its continued
existence.
In making this 90-day finding, we
evaluated whether information
regarding the coqui llanero, as presented
in the petition and clarified by
information available in our files, is
substantial, thereby indicating that the
petitioned action may be warranted. Our
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evaluation of this information is
presented below.
A. The Present or Threatened
Destruction, Modification, or
Curtailment of Habitat or Range
According to the petition, the
existence of the coqui llanero is
imperiled due to the existing and
imminent threatened destruction,
modification, and curtailment of its
wetland habitat and geographic range.
The petitioner identified three main
threats under Factor A: (1) The
construction of a go-kart and motorbike
racetrack in the coqui llanero’s wetland
habitat, (2) urban development, and (3)
contamination from the Toa Baja
Municipal Landfill. The petition claims
that the construction and operation of a
go-kart and motorbike racetrack within
the vicinity of the habitat of the coqui
llanero are presently affecting the
species’ habitat. The petition also claims
that contamination with oil, gasoline,
and other pollutants due to this
racetrack is a threat since the area is
prone to flooding.
Information in our files (DRNA 2007b,
pp. 23–25) supports the petitioner’s
contention that the construction and
operation of a racetrack for motorbikes
and go-karts located north of the habitat
would have negative impacts and is a
current threat to the species. The
Commonwealth of Puerto Rico’s final
designation of essential critical natural
habitat for the coqui llanero (see Factor
D discussion below) shows a
photograph of the flooded racetrack
(DRNA 2007b, p. 25). The text below the
illustration specifies that the habitat of
the coqui llanero was filled for the
construction of racetrack, and that as a
result of flooding events, contaminants
such as oil and gasoline from the track
spilled frequently into the wetland
(DRNA 2007b, p. 25).
As described in the petition, the Toa
Baja Landfill, located inland on top of
a limestone hill, is another major threat
to the coqui llanero. The petition states
that polluted waters from the continued
operation of this landfill may pose a
serious threat to the coqui llanero,
because underground-contaminated
waters and leachates reaching the
wetlands may change water quality,
soils, and consequently plant
composition (Caribbean Primate
Research Center 2007, p. 4; Caribbean
Primate Research Center 2008, pp. 6–9).
The petitioner also contends that the
species and its habitat are threatened by
large-scale residential projects that are
currently planned within and around
the coqui llanero habitat located within
the south tract of the former U.S. Navy
NSGA Sabana Seca. The petitioner
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states that the Municipality of Toa Baja
(as part of its land use plans) intends to
zone the habitat, an area formerly part
of the Sabana Seca Navy Base, for
residential development. The petitioner
claims that the U.S. Navy, in
collaboration with the Municipality of
Toa Baja, has selected residential
development as the ‘‘preferred
alternative’’ for the wetlands area within
the south tract of the former navy base,
which would represent the destruction
of 168 ha (416 ac) of wetlands,
including the coqui llanero’s habitat.
In 2005, the U.S. Navy consulted with
the Service on the sale of the former
USNS–GASS property and reuse of the
land for residential purposes. The
proposed disposal mechanism for
Sabana Seca involved the marketing and
sale of the property. At that time, we
were not aware of the existence of this
new species and its habitat within the
property. Therefore, the Service was
only concerned about the possible
adverse effects to wetland resources of
future re-use and development of this
area.
The petitioners assert that the above
issues substantially impact the
distribution and abundance of the coqui
llanero, as well as its habitat in all of its
range. Based on the information
provided in the petition and available in
our files, we conclude that the
petitioners have presented substantial
information to indicate that the present
or threatened destruction or
modification of habitat or range may
present a threat to this species.
B. Overutilization for Commercial,
Recreational, Scientific, or Educational
Purposes
Neither the petition nor information
in our files presents information
indicating that overutilization of coqui
llanero for commercial, recreational,
scientific, or educational purposes is a
threat. Therefore, we find that the
petition does not present substantial
information to indicate that the
overutilization for commercial,
recreational, scientific, or educational
purposes may present a threat to the
coqui llanero.
C. Disease or Predation
Neither the petition nor information
in our files presents information
indicating that disease or predation are
significant threats to the coqui llanero.
Therefore, we find that the petition does
not present substantial information to
indicate that disease or predation may
present significant threats to the coqui
llanero.
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D. Inadequacy of Existing Regulatory
Mechanisms
The petitioner claims that we need to
list the species and designate critical
habitat for it because no other regulatory
mechanism protecting the species or its
habitat is in place. However, according
to information in our files, the
Department of Natural and
Environmental Resources (DNER) for
the Commonwealth of Puerto Rico
designated the species as Critically
Endangered and designated its habitat
as Essential Critical Natural Habitat
under Commonwealth Law 241 and
Regulation 6766 in July 2007. The
designation as ‘‘critically endangered’’
prohibits any person from taking the
species: It prohibits harm, possession,
transportation, destruction, or import or
export of individuals, nests, eggs or
juveniles without previous
authorization from the Secretary of
DNER. Article 2 of Regulation 6766
includes all prohibitions.
DNER designated approximately 200
ha (509 ac) as ‘‘essential critical natural
habitat’’ in accordance with Regulation
6766. Article 4.05 of this regulation
specifies that an area designated as
essential critical natural habitat cannot
be modified unless scientific studies
determine that such designation should
be changed. Article 2.06 of this
regulation prohibits collecting,
harassing, hunting, and removing,
among other activities, of listed animals
within the jurisdiction of Puerto Rico.
Because the coqui llanero’s habitat is
the first to be designated as Essential
Critical Natural Habitat under
Commonwealth Law 241 and Regulation
6766, no one is certain of the level of
protection this law will provide.
Therefore, we conclude that the
petitioners have presented substantial
information to indicate that existing
regulatory mechanisms may be
inadequate to protect the coqui llanero.
E. Other Natural or Manmade Factors
Affecting the Species’ Continued
Existence
The petitioner asserts that the species
is at risk of extinction throughout its
range as a result of its extremely limited
distribution of approximately 200 ha
(494 ac). With European colonization,
land was extensively drained and
modified for agricultural practices. A
shift in the Puerto Rican economy from
agriculture to industry led to land
abandonment, and this species’ habitat
is thought to represent a relic of an
endemic herbaceous palustrine wetland.
Based on the information provided in
the petition and information in our files,
the species is currently only known
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from the Sabana-Seca-Ingenio Ward (the
locality in which the species was
described), a seasonally flooded
palustrine herbaceous wetland in Toa
´
Baja (Rios-Lopez and Thomas 2007, p.
60; Caribbean Primate Research Center
2007, p. 2; DRNA 2007a, pp. 1–11; and
DRNA 2007b, pp. 1–38; Caribbean
Primate Research Center 2008, p. 2).
Land conversion to residential or
commercial projects is likely to occur in
the near future because the Municipality
of Toa Baja (as part of its land use plans)
intends to zone the habitat, an area
formerly part of the Sabana Seca Navy
Base, for residential development. This
species has not been found in any other
location. The species’ limited range and
apparent habitat requirements may be a
factor affecting the species’ continued
existence.
The petitioner also asserted that the
species is threatened by other reasons
related to its low reproductive capacity,
highly specialized ecological
requirements, brush fires, use of
herbicides and changing climate
conditions. Although the petition
reports an abundance of 450
individuals/ha (181 individuals/ac)
(Caribbean Primate Research Center
2007, p. 3; Caribbean Primate Research
Center 2008, p.5), it identified low
reproductive capacity as a threat to the
´
species. Rios-Lopez and Thomas (2007,
p. 60) found that egg clutches generally
contain 1 to 5 eggs, based on data
collected from 24 egg clutches. Rios´
Lopez and Thomas (2007, p. 63)
indicated that recent surveys conducted
in nearby wetlands failed to locate the
species and that apparently, there are
few or no wetlands with plant
composition similar to that found in the
Sabana-Seca type locality.
No additional information was
provided regarding how many wetlands
have been surveyed for determining
presence or absence of the species nor
what type of studies have been
conducted to compare habitat
characteristics among these wetlands.
However, the evidence presented in the
petition and in the scientific literature
suggest that the species is an obligate
´
marsh-dweller (Rios-Lopez 2007, p. 62)
and has only been found in the Sabana
Seca-Ingenio Ward. Also, the petition
mentions that brush fire increases the
species risk of extinction by reducing
the cover of the wetland. The amended
petition mentioned that the current use
of herbicides in the former base, as part
of the maintenance work on the
grounds, represents a current threat to
the species. Additionally, the amended
petition identified changing climatic
conditions as a possible threat to the
wetland where the coqui llanero is
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currently present. However, no further
information was provided supporting
these threats.
To summarize, the primary natural or
manmade threats appear to be the
limited distribution, low reproductive
capacity, highly specialized ecological
requirements, and potential threats such
as the use of herbicides and fires to the
species’ habitat. Based on the
information presented in the petition
and available in our files, we find that
the petition presents substantial
information to indicate that other
natural or manmade factors may be
affecting the continued existence of the
coqui llanero. Therefore, we find that
the petition presents substantial
information for this factor.
Finding
Section 4(b)(3)(A) of the Act requires
that we make a finding on whether a
petition to list, delist, or reclassify a
species presents substantial scientific or
commercial information indicating that
the petitioned action may be warranted.
We are to base this finding on
information provided in the petition,
supporting information submitted with
the petition, and information otherwise
available in our files. To the maximum
extent practicable, we are to make this
finding within 90 days of our receipt of
the petition and publish our notice of
the finding promptly in the Federal
Register.
Our process for making this 90-day
finding under section 4(b)(3)(A) of the
Act is limited to a determination of
whether the information in the petition
presents ‘‘substantial scientific and
commercial information,’’ which is
interpreted in our regulations as ‘‘that
amount of information that would lead
a reasonable person to believe that the
measure proposed in the petition may
be warranted’’ (50 CFR 424.14(b)). As
described in our five-factor analysis
above, the petition presents substantial
information indicating that listing the
coqui llanero as threatened or
endangered throughout its entire range
may be warranted based on Factors A,
D, and E. We reviewed the petition,
supporting information provided by the
petitioner, and information in our files,
and we evaluated that information to
determine whether the sources cited
support the claims made in the petition.
The petition and supporting
information identified numerous factors
affecting the species, including
residential development, lack of
regulatory mechanisms protecting the
species and its habitat, and the limited
habitat suitability available to the
species. Our conclusion is based on
information that indicates that the
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species’ continued existence may be
affected by loss and fragmentation of
habitat from land conversion,
development, and habitat contamination
(Factor A); inadequate protection from
threats by regulatory mechanisms
(Factor D); and other natural or
manmade factors such as limited habitat
and range, low reproductive capacity,
highly specialized ecological
requirements, and use of herbicides and
fires (Factor E). The petition did not
contain information indicating that
Factors B and C are considered a threat
to this species. As a result of this
finding, we are initiating a status review
of the species. At the conclusion of the
status review, we will issue a 12-month
finding, in accordance with section
4(b)(3)(B) of the Act, as to whether or
not we believe a proposal to list the
species is warranted.
The ‘‘substantial information’’
standard for a 90-day finding is not the
same as the Act’s ‘‘best scientific and
commercial data’’ standard that applies
to a 12-month finding to determine
whether a petitioned action is
warranted. A 90-day finding is not a
status assessment of the species and
does not constitute a status review
under the Act. Our final determination
of whether a petitioned action is
warranted is not made until we have
completed a thorough status review of
the species as part of the 12-month
finding on a petition, which is
conducted following a positive 90-day
finding. Because the Act’s standards for
90-day and 12-month findings are
different, as described above, a positive
90-day finding does not mean that the
12-month finding also will be positive.
References Cited
A complete list of references cited is
available on the Internet at https://
www.regulations.gov and upon request
from the Caribbean Ecological Services
Field Office (see FOR FURTHER
INFORMATION CONTACT).
Authors
The primary authors of this notice are
the staff members of the Caribbean
Ecological Services Field Office.
Authority
The authority for this action is section
4 of the Endangered Species Act of
1973, as amended (16 U.S.C. 1531 et
seq.).
Dated: June 26, 2009.
Marvin E. Moriarty,
Acting Deputy Director, U.S. Fish and Wildlife
Service.
[FR Doc. E9–16065 Filed 7–7–09; 8:45 am]
BILLING CODE 4310–55–P
E:\FR\FM\08JYP1.SGM
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Agencies
[Federal Register Volume 74, Number 129 (Wednesday, July 8, 2009)]
[Proposed Rules]
[Pages 32510-32513]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: E9-16065]
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DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
50 CFR Part 17
[FWS-R4-ES-2009-0022; 92210-1117-000-B4]
Endangered and Threatened Wildlife and Plants; 90-Day Finding on
a Petition To List the Coqui Llanero (Eleutherodactylus juanariveroi)
as Endangered
AGENCY: Fish and Wildlife Service, Interior.
ACTION: Notice of petition finding and initiation of status review.
-----------------------------------------------------------------------
SUMMARY: We, the U.S. Fish and Wildlife Service (the Service), announce
a 90-day finding on a petition to list coqui llanero (Eleutherodactylus
juanariveroi), a tree frog, as threatened or endangered under the
Endangered Species Act of 1973, as amended (Act). Following our review
of the petition, we find that it provides substantial scientific or
commercial information indicating that listing this species may be
warranted. Therefore, with the publication of this notice, we initiate
a status review to determine if listing the coqui llanero is warranted.
To ensure that the status review is comprehensive, we request
scientific and commercial data and other information regarding this
species. We will initiate a determination on critical habitat for this
species if and when we initiate a listing action.
DATES: We made the finding announced in this document on July 8, 2009.
To allow us adequate time to conduct this review, we request that
information be submitted on or before September 8, 2009.
ADDRESSES: You may submit information by one of the following methods:
Federal eRulemaking Portal: https://www.regulations.gov.
Follow the instructions for submitting comments.
U.S. mail or hand-delivery: Public Comments Processing,
Attn: FWS-R4-ES-2009-0022; Division of Policy and Directives
Management; U.S. Fish and Wildlife Service; 4401 N. Fairfax Drive,
Suite 222, Arlington, VA 22203.
We will post all information we receive on https://www.regulations.gov. This generally means that we will post any
personal information you provide us (see the Information Solicited
section below for more details).
FOR FURTHER INFORMATION CONTACT: Edwin E. Mu[ntilde]iz, Field
Supervisor, Caribbean Ecological Services Field Office, P.O. Box 491,
Boquer[oacute]n, PR 00622; by telephone, (787) 851-7297; or by
facsimile, (787) 851-7440. Persons who use a telecommunications device
for the deaf (TDD) may call the Federal Information Relay Service
(FIRS) at 800-877-8339.
SUPPLEMENTARY INFORMATION:
Information Solicited
When we make a finding that a petition presents substantial
information indicating that listing a species may be warranted, the Act
(16 U.S.C. 1531 et seq.) requires us to promptly commence a review of
the status of the species. To ensure that the status review is complete
and based on the best available scientific and commercial information,
we seek information on the coqui llanero. We request information from
the public, other concerned governmental agencies, Native American
Tribes, the scientific community, industry, or any other interested
parties concerning the status of the coqui llanero. We seek information
regarding:
(1) The species' historical and current status and distribution,
its biology and ecology, and ongoing conservation measures for the
species and its habitat;
(2) Information relevant to the factors that are the basis for our
making any listing determination for a species under section 4(a) of
the Act, which are:
(a) The present or threatened destruction, modification, or
curtailment of the species' habitat or range;
(b) overutilization for commercial, recreational, scientific, or
educational purposes;
(c) disease or predation;
(d) the inadequacy of existing regulatory mechanisms; or
(e) other natural or manmade factors affecting its continued
existence and threats to the species or its habitat; and
(3) Information on the effects of climate change, sea-level change,
and water temperature change on the distribution and abundance of the
species.
If we determine that listing the species is warranted, we intend to
propose critical habitat to the maximum extent prudent and determinable
at the time we propose the listing. Therefore, with regard to areas
within the geographical range currently occupied by the coqui llanero,
we also request data and information on what may constitute physical or
biological features essential to the conservation of the species, where
these features are currently found, and whether any of these features
may require special management considerations or protection. In
addition, we request data and information regarding whether there are
areas outside the geographical area occupied by the species that are
essential to the conservation of the species. Please provide specific
comments and information as to what, if any, critical habitat you think
we should propose for designation if the species is proposed for
listing, and why such habitat meets the requirements of the Act.
Please note that submissions merely stating support for or
opposition to the action under consideration without providing
supporting information, although noted, will not be considered in
making a determination, as section 4(b)(1)(A) of the Act (16 U.S.C.
1531 et seq.) directs that determinations as to whether any species is
a threatened or endangered species must be made ``solely on the basis
of the best scientific and commercial data available.'' Based on the
status review, we will issue a 12-month finding on the petition, as
provided in section 4(b)(3)(B) of the Act.
You may submit your information concerning this status review by
one of the methods listed in the ADDRESSES section.
If you submit information via https://www.regulations.gov, your
entire submission--including any personal identifying information--will
be posted on the Web site. If your submission is made via a hardcopy
that includes personal identifying information, you may request at the
top of your document that we withhold your personal information from
public review. However, we cannot guarantee that we will be able to do
so. We will post all hardcopy comments on https://www.regulations.gov.
Information and materials we receive, as well as supporting
documentation we used in preparing this finding, will be available for
public inspection on https://www.regulations.gov, or by appointment,
during normal business hours, at the U.S. Caribbean Ecological Services
Field Office (see FOR FURTHER INFORMATION CONTACT section).
Background
Section 4(b)(3)(A) of the Act requires that we make a finding on
whether a petition to list, delist, or reclassify a species presents
substantial scientific or commercial information indicating that
[[Page 32511]]
the petitioned action may be warranted. We are to base this finding on
information provided in the petition, supporting information submitted
with the petition, and information otherwise available in our files. To
the maximum extent practicable, we are to make this finding within 90
days of our receipt of the petition and publish our notice of the
finding promptly in the Federal Register.
Our standard for substantial scientific or commercial information
within the Code of Federal Regulations (CFR) with regard to a 90-day
petition finding is ``that amount of information that would lead a
reasonable person to believe that the measure proposed in the petition
may be warranted'' (50 CFR 424.14(b)). If we find that substantial
scientific or commercial information was presented, we are required to
promptly commence a status review of the species.
On May 22, 2007, we received a petition dated May 11, 2007, from
the Caribbean Primate Research Center requesting that we list the coqui
llanero as endangered under the Act. The petition also requested that
we designate critical habitat concurrently with listing, if listing
occurs. The petition clearly identified itself as such and included the
requisite identification information for the petitioners, as required
in 50 CFR 424.14(a). In a July 23, 2007, letter to the petitioners, we
responded that we had reviewed the petition and determined that an
emergency listing was not necessary. We also stated that we would not
be able to address the petition until funding became available. Actions
in this petition were precluded by court orders and settlement
agreements for other listing actions that required nearly all of our
listing funds for fiscal year 2007. However, in fiscal year 2008,
funding became available, enabling us to address this petition.
Accordingly, this finding addresses the petition. On January 22, 2009,
we received an amended petition dated January 13, 2008. The amended
petition included literature references published in 2007, provided
photographs and maps, and updated information on current threats to the
species.
Species Information
Neftali Rios-L[oacute]pez and Richard Thomas first collected the
coqui llanero (Eleutherodactylus juanariveroi), a tree frog, in 2005
from a seasonally flooded herbaceous wetland near the U.S. Naval
Security Group Activity Sabana Seca (USNS-GASS) property and the
Caribbean Primate Research Center, Toa Baja, Puerto Rico. The coqui
llanero was later described as a new species of the genus
Eleutherodactylus, family Leptodactylidae, in 2007. Although the new
species is similar to the Eleutherodactylus gryllus, differences in
morphological ratios, body coloration, frequency of calls, call
structure, DNA, and habitat association indicate that it is a well-
differentiated species (Rios-L[oacute]pez and Thomas 2007, pp. 53-60;
Caribbean Primate Research Center 2007, p. 1; Caribbean Primate
Research Center 2008, p. 1). At the time of this determination, this
endemic Puerto Rican tree frog is only known from this type locality
(Rios-L[oacute]pez and Thomas 2007, p. 60; Caribbean Primate Research
Center 2007, p. 1; Departamento de Recursos Naturales y Ambientales
(DRNA) 2007a, p. 3; DRNA 2007b, p. 1; Caribbean Primate Research Center
2008, p. 2). It is only known to occur in the Sabana Seca-Ingenio Ward,
Toa Baja, a municipality of Puerto Rico located on the northern coast,
north of Toa Alta and Bayam[oacute]n; east of Dorado; and west of
Cata[ntilde]o, approximately 12 miles (20 kilometers) from San Juan.
The coqui llanero is the smallest Puerto Rican Eleutherodactylus
and is the only known herbaceous-wetland specialist in Puerto Rico
within the taxonomic genus Eleutherodactylus. It has a mean snout-vent
length of 14.7 millimeters (mm) (0.58 inches (in)) in males, and 15.8
mm (0.62 in) in females. The nares (nasal passages) are prominent, and
a ridge connects them behind the snout tip, giving the tip a somewhat
squared-off appearance. The species has well-developed glands through
its body; its dorsal coloration is yellow to yellowish brown with a
light, longitudinal, reversed comma mark on each side; and its mid-
dorsal zone is broadly bifurcated (divided into two branches). The
species' communication call consists of a series of short high-pitched
notes with call duration varying from 4 to 21 seconds. The
advertisement call has the highest frequency among all Puerto Rican
Eleutherodactylus, between 7.38 and 8.28 kilohertz. The calling
activity starts at approximately 4:30 p.m. and decreases significantly
before midnight. Egg clutches comprise one to five eggs and are found
on leaf axils or leaf surfaces between 0.4 meters (m) (1.3 feet (ft))
and 1.2 m (3.9 ft) above water level (Rios-L[oacute]pez and Thomas
2007, pp. 53-62). Observers did not see parental care in the field
(Caribbean Primate Research Center 2007, p. 3; Caribbean Primate
Research Center 2008, p. 5).
The coqui llanero is only known to occur in the Sabana Seca-Ingenio
Ward, Toa Baja type locality, which consists of approximately 180
hectares (ha) (444.8 acres (ac)) of seasonally flooded palustrine
(marshy, non-tidal wetlands substantially covered with emergent
vegetation such as trees, shrubs, and moss, or fresh-water herbaceous
wetland), at 17 m (55.8 ft) above sea level (Rios-L[oacute]pez and
Thomas 2007, p. 60; Caribbean Primate Research Center 2007, p. 2).
According to the petitioner, the species' habitat may represent a
relict of an endemic habitat type (Rios-L[oacute]pez and Thomas 2007,
p. 63). The habitat is categorized as within the subtropical moist
forest life zone (Ewel and Whitmore 1973, pp. 20-38). The main
vegetation in this herbaceous wetland consists of toothed midsorus fern
(Blechnum serrulatum), willdenow's maiden fern (Thelypteris
interrupta), bulltongue arrowhead (Sagittaria lancifolia), flat sedges
(Cyperus sp.), spike rushes (Eleocharis sp.), and vines and grasses
(Caribbean Primate Research Center 2007, p. 2; Caribbean Primate
Research Center 2008, p. 2).
The majority of the individuals were found perching and calling on
the toothed midsorus fern and willdenow's maiden fern. Reproduction,
however, only occurs on the bulltongue arrowhead (Caribbean Primate
Research Center 2007, p. 2; Caribbean Primate Research Center 2008, p.
4). All specimens (45 individuals) were collected while perching,
sitting, or calling on herbaceous vegetation, mainly on ferns. Egg
clutches were found on leaf axils (21 egg clutches) or leaf surfaces (3
egg clutches) of only S. lancifolia (Rios-L[oacute]pez and Thomas 2007,
p. 60).
Five-Factor Evaluation
Section 4 of the Act (16 U.S.C. 1533), and its implementing
regulations at 50 CFR part 424, set forth procedures for adding species
to the Federal List of Endangered and Threatened Wildlife and Plants. A
species may be determined to be an endangered or threatened species due
to one or more of the five factors described in section 4(a)(1) of the
Act: (A) The present or threatened destruction, modification, or
curtailment of its habitat or range; (B) overutilization for
commercial, recreational, scientific, or educational purposes; (C)
disease or predation; (D) the inadequacy of existing regulatory
mechanisms; or (E) other natural or manmade factors affecting its
continued existence.
In making this 90-day finding, we evaluated whether information
regarding the coqui llanero, as presented in the petition and clarified
by information available in our files, is substantial, thereby
indicating that the petitioned action may be warranted. Our
[[Page 32512]]
evaluation of this information is presented below.
A. The Present or Threatened Destruction, Modification, or Curtailment
of Habitat or Range
According to the petition, the existence of the coqui llanero is
imperiled due to the existing and imminent threatened destruction,
modification, and curtailment of its wetland habitat and geographic
range. The petitioner identified three main threats under Factor A: (1)
The construction of a go-kart and motorbike racetrack in the coqui
llanero's wetland habitat, (2) urban development, and (3) contamination
from the Toa Baja Municipal Landfill. The petition claims that the
construction and operation of a go-kart and motorbike racetrack within
the vicinity of the habitat of the coqui llanero are presently
affecting the species' habitat. The petition also claims that
contamination with oil, gasoline, and other pollutants due to this
racetrack is a threat since the area is prone to flooding.
Information in our files (DRNA 2007b, pp. 23-25) supports the
petitioner's contention that the construction and operation of a
racetrack for motorbikes and go-karts located north of the habitat
would have negative impacts and is a current threat to the species. The
Commonwealth of Puerto Rico's final designation of essential critical
natural habitat for the coqui llanero (see Factor D discussion below)
shows a photograph of the flooded racetrack (DRNA 2007b, p. 25). The
text below the illustration specifies that the habitat of the coqui
llanero was filled for the construction of racetrack, and that as a
result of flooding events, contaminants such as oil and gasoline from
the track spilled frequently into the wetland (DRNA 2007b, p. 25).
As described in the petition, the Toa Baja Landfill, located inland
on top of a limestone hill, is another major threat to the coqui
llanero. The petition states that polluted waters from the continued
operation of this landfill may pose a serious threat to the coqui
llanero, because underground-contaminated waters and leachates reaching
the wetlands may change water quality, soils, and consequently plant
composition (Caribbean Primate Research Center 2007, p. 4; Caribbean
Primate Research Center 2008, pp. 6-9).
The petitioner also contends that the species and its habitat are
threatened by large-scale residential projects that are currently
planned within and around the coqui llanero habitat located within the
south tract of the former U.S. Navy NSGA Sabana Seca. The petitioner
states that the Municipality of Toa Baja (as part of its land use
plans) intends to zone the habitat, an area formerly part of the Sabana
Seca Navy Base, for residential development. The petitioner claims that
the U.S. Navy, in collaboration with the Municipality of Toa Baja, has
selected residential development as the ``preferred alternative'' for
the wetlands area within the south tract of the former navy base, which
would represent the destruction of 168 ha (416 ac) of wetlands,
including the coqui llanero's habitat.
In 2005, the U.S. Navy consulted with the Service on the sale of
the former USNS-GASS property and reuse of the land for residential
purposes. The proposed disposal mechanism for Sabana Seca involved the
marketing and sale of the property. At that time, we were not aware of
the existence of this new species and its habitat within the property.
Therefore, the Service was only concerned about the possible adverse
effects to wetland resources of future re-use and development of this
area.
The petitioners assert that the above issues substantially impact
the distribution and abundance of the coqui llanero, as well as its
habitat in all of its range. Based on the information provided in the
petition and available in our files, we conclude that the petitioners
have presented substantial information to indicate that the present or
threatened destruction or modification of habitat or range may present
a threat to this species.
B. Overutilization for Commercial, Recreational, Scientific, or
Educational Purposes
Neither the petition nor information in our files presents
information indicating that overutilization of coqui llanero for
commercial, recreational, scientific, or educational purposes is a
threat. Therefore, we find that the petition does not present
substantial information to indicate that the overutilization for
commercial, recreational, scientific, or educational purposes may
present a threat to the coqui llanero.
C. Disease or Predation
Neither the petition nor information in our files presents
information indicating that disease or predation are significant
threats to the coqui llanero. Therefore, we find that the petition does
not present substantial information to indicate that disease or
predation may present significant threats to the coqui llanero.
D. Inadequacy of Existing Regulatory Mechanisms
The petitioner claims that we need to list the species and
designate critical habitat for it because no other regulatory mechanism
protecting the species or its habitat is in place. However, according
to information in our files, the Department of Natural and
Environmental Resources (DNER) for the Commonwealth of Puerto Rico
designated the species as Critically Endangered and designated its
habitat as Essential Critical Natural Habitat under Commonwealth Law
241 and Regulation 6766 in July 2007. The designation as ``critically
endangered'' prohibits any person from taking the species: It prohibits
harm, possession, transportation, destruction, or import or export of
individuals, nests, eggs or juveniles without previous authorization
from the Secretary of DNER. Article 2 of Regulation 6766 includes all
prohibitions.
DNER designated approximately 200 ha (509 ac) as ``essential
critical natural habitat'' in accordance with Regulation 6766. Article
4.05 of this regulation specifies that an area designated as essential
critical natural habitat cannot be modified unless scientific studies
determine that such designation should be changed. Article 2.06 of this
regulation prohibits collecting, harassing, hunting, and removing,
among other activities, of listed animals within the jurisdiction of
Puerto Rico.
Because the coqui llanero's habitat is the first to be designated
as Essential Critical Natural Habitat under Commonwealth Law 241 and
Regulation 6766, no one is certain of the level of protection this law
will provide. Therefore, we conclude that the petitioners have
presented substantial information to indicate that existing regulatory
mechanisms may be inadequate to protect the coqui llanero.
E. Other Natural or Manmade Factors Affecting the Species' Continued
Existence
The petitioner asserts that the species is at risk of extinction
throughout its range as a result of its extremely limited distribution
of approximately 200 ha (494 ac). With European colonization, land was
extensively drained and modified for agricultural practices. A shift in
the Puerto Rican economy from agriculture to industry led to land
abandonment, and this species' habitat is thought to represent a relic
of an endemic herbaceous palustrine wetland. Based on the information
provided in the petition and information in our files, the species is
currently only known
[[Page 32513]]
from the Sabana-Seca-Ingenio Ward (the locality in which the species
was described), a seasonally flooded palustrine herbaceous wetland in
Toa Baja (Rios-L[oacute]pez and Thomas 2007, p. 60; Caribbean Primate
Research Center 2007, p. 2; DRNA 2007a, pp. 1-11; and DRNA 2007b, pp.
1-38; Caribbean Primate Research Center 2008, p. 2). Land conversion to
residential or commercial projects is likely to occur in the near
future because the Municipality of Toa Baja (as part of its land use
plans) intends to zone the habitat, an area formerly part of the Sabana
Seca Navy Base, for residential development. This species has not been
found in any other location. The species' limited range and apparent
habitat requirements may be a factor affecting the species' continued
existence.
The petitioner also asserted that the species is threatened by
other reasons related to its low reproductive capacity, highly
specialized ecological requirements, brush fires, use of herbicides and
changing climate conditions. Although the petition reports an abundance
of 450 individuals/ha (181 individuals/ac) (Caribbean Primate Research
Center 2007, p. 3; Caribbean Primate Research Center 2008, p.5), it
identified low reproductive capacity as a threat to the species. Rios-
L[oacute]pez and Thomas (2007, p. 60) found that egg clutches generally
contain 1 to 5 eggs, based on data collected from 24 egg clutches.
Rios-L[oacute]pez and Thomas (2007, p. 63) indicated that recent
surveys conducted in nearby wetlands failed to locate the species and
that apparently, there are few or no wetlands with plant composition
similar to that found in the Sabana-Seca type locality.
No additional information was provided regarding how many wetlands
have been surveyed for determining presence or absence of the species
nor what type of studies have been conducted to compare habitat
characteristics among these wetlands. However, the evidence presented
in the petition and in the scientific literature suggest that the
species is an obligate marsh-dweller (Rios-L[oacute]pez 2007, p. 62)
and has only been found in the Sabana Seca-Ingenio Ward. Also, the
petition mentions that brush fire increases the species risk of
extinction by reducing the cover of the wetland. The amended petition
mentioned that the current use of herbicides in the former base, as
part of the maintenance work on the grounds, represents a current
threat to the species. Additionally, the amended petition identified
changing climatic conditions as a possible threat to the wetland where
the coqui llanero is currently present. However, no further information
was provided supporting these threats.
To summarize, the primary natural or manmade threats appear to be
the limited distribution, low reproductive capacity, highly specialized
ecological requirements, and potential threats such as the use of
herbicides and fires to the species' habitat. Based on the information
presented in the petition and available in our files, we find that the
petition presents substantial information to indicate that other
natural or manmade factors may be affecting the continued existence of
the coqui llanero. Therefore, we find that the petition presents
substantial information for this factor.
Finding
Section 4(b)(3)(A) of the Act requires that we make a finding on
whether a petition to list, delist, or reclassify a species presents
substantial scientific or commercial information indicating that the
petitioned action may be warranted. We are to base this finding on
information provided in the petition, supporting information submitted
with the petition, and information otherwise available in our files. To
the maximum extent practicable, we are to make this finding within 90
days of our receipt of the petition and publish our notice of the
finding promptly in the Federal Register.
Our process for making this 90-day finding under section 4(b)(3)(A)
of the Act is limited to a determination of whether the information in
the petition presents ``substantial scientific and commercial
information,'' which is interpreted in our regulations as ``that amount
of information that would lead a reasonable person to believe that the
measure proposed in the petition may be warranted'' (50 CFR 424.14(b)).
As described in our five-factor analysis above, the petition presents
substantial information indicating that listing the coqui llanero as
threatened or endangered throughout its entire range may be warranted
based on Factors A, D, and E. We reviewed the petition, supporting
information provided by the petitioner, and information in our files,
and we evaluated that information to determine whether the sources
cited support the claims made in the petition.
The petition and supporting information identified numerous factors
affecting the species, including residential development, lack of
regulatory mechanisms protecting the species and its habitat, and the
limited habitat suitability available to the species. Our conclusion is
based on information that indicates that the species' continued
existence may be affected by loss and fragmentation of habitat from
land conversion, development, and habitat contamination (Factor A);
inadequate protection from threats by regulatory mechanisms (Factor D);
and other natural or manmade factors such as limited habitat and range,
low reproductive capacity, highly specialized ecological requirements,
and use of herbicides and fires (Factor E). The petition did not
contain information indicating that Factors B and C are considered a
threat to this species. As a result of this finding, we are initiating
a status review of the species. At the conclusion of the status review,
we will issue a 12-month finding, in accordance with section 4(b)(3)(B)
of the Act, as to whether or not we believe a proposal to list the
species is warranted.
The ``substantial information'' standard for a 90-day finding is
not the same as the Act's ``best scientific and commercial data''
standard that applies to a 12-month finding to determine whether a
petitioned action is warranted. A 90-day finding is not a status
assessment of the species and does not constitute a status review under
the Act. Our final determination of whether a petitioned action is
warranted is not made until we have completed a thorough status review
of the species as part of the 12-month finding on a petition, which is
conducted following a positive 90-day finding. Because the Act's
standards for 90-day and 12-month findings are different, as described
above, a positive 90-day finding does not mean that the 12-month
finding also will be positive.
References Cited
A complete list of references cited is available on the Internet at
https://www.regulations.gov and upon request from the Caribbean
Ecological Services Field Office (see FOR FURTHER INFORMATION CONTACT).
Authors
The primary authors of this notice are the staff members of the
Caribbean Ecological Services Field Office.
Authority
The authority for this action is section 4 of the Endangered
Species Act of 1973, as amended (16 U.S.C. 1531 et seq.).
Dated: June 26, 2009.
Marvin E. Moriarty,
Acting Deputy Director, U.S. Fish and Wildlife Service.
[FR Doc. E9-16065 Filed 7-7-09; 8:45 am]
BILLING CODE 4310-55-P