Endangered and Threatened Wildlife; 90-Day Finding on a Petition To List Alabama Shad as Threatened or Endangered Under the Endangered Species Act, 57611-57616 [2013-22869]
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Federal Register / Vol. 78, No. 182 / Thursday, September 19, 2013 / Proposed Rules
proposed critical habitat. Pine Crest
Ranch is owned by the Ute Mountain
Ute Tribe under restricted fee status.
The majority of the property is occupied
by Gunnison sage-grouse, and four leks
occur on the property. In our January
11, 2013, proposed rule to designate
critical habitat (78 FR 2540), we
considered the Pine Crest Ranch to be
private property.
Since February of 2013, the Service
has been in communication with the
Ute Mountain Ute Tribe. The Service
attended a Tribal Council Meeting on
March 26, 2013, to discuss the proposed
critical habitat designation and
proposed listing of Gunnison sagegrouse. The Tribe has expressed an
interest in developing a conservation
plan for Gunnison sage-grouse on this
property and has requested exclusion of
the Pine Crest Ranch from the critical
habitat designation. We understand that
the Tribe’s legal department is in the
process of developing a conservation
plan for their property.
To pursue options for developing a
conservation plan, the Service has
evaluated conservation funding and
opportunities for Pine Crest Ranch
through its Partners for Fish and
Wildlife Program. We have also
coordinated with the Natural Resources
Conservation Service (NRCS) to discuss
options for enrollment in conservation
programs for Gunnison sage-grouse.
Depending on the outcome of that
discussion, an ongoing section 7
conference with the NRCS for
conservation programs and practices in
Gunnison sage-grouse range could
include Pine Crest Ranch.
We will conduct government-togovernment consultation with the Ute
Mountain Ute Tribe throughout the
development of the final designation of
critical habitat. We will consider the
Pine Crest Ranch for exclusion from
final critical habitat designation
consistent with the requirements of
section 4(b)(2) of the Act.
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Authors
The primary authors of this notice are
the staff members of the Regional Office
and Western Colorado Field Office,
Mountain-Prairie Region, U.S. Fish and
Wildlife Service.
Authority
The authority for this action is the
Endangered Species Act of 1973, as
amended (16 U.S.C. 1531 et seq.).
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Dated: August 12, 2013.
Rachel Jacobsen,
Principal Deputy Assistant Secretary for Fish
and Wildlife and Parks.
[FR Doc. 2013–22706 Filed 9–18–13; 8:45 am]
BILLING CODE 4310–55–P
DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric
Administration
50 CFR Parts 223 and 224
[Docket No. 130626570–3570–01]
RIN 0648–XC742
Endangered and Threatened Wildlife;
90-Day Finding on a Petition To List
Alabama Shad as Threatened or
Endangered Under the Endangered
Species Act
National Marine Fisheries
Service (NMFS), National Oceanic and
Atmospheric Administration (NOAA),
Department of Commerce (DOC).
ACTION: Notice of 90-day petition
finding, request for information.
AGENCY:
We (NMFS) announce a 90day finding on a petition to list Alabama
shad (Alosa alabamae) as threatened or
endangered under the Endangered
Species Act (ESA) and to designate
critical habitat concurrent with the
listing. We find that the information in
our files presents substantial scientific
or commercial information indicating
that the petitioned action may be
warranted. We will conduct a status
review of the species to determine if the
petitioned action is warranted. To
ensure that the status review is
comprehensive, we are soliciting
scientific and commercial information
regarding this species (see below).
DATES: Information and comments on
the subject action must be received by
November 18, 2013.
ADDRESSES: You may submit
information, identified by the code
NOAA–NMFS_2013–0142, addressed
to: Kelly Shotts, Ecologist, by any of the
following methods:
• Electronic Submissions: Submit all
electronic information via the Federal
eRulemaking Portal. Go to https://
www.regulations.gov/
#!docketDetail;D=NOAA-NMFS-20130142, click the ‘‘Comment Now!’’ icon,
complete the required fields, and enter
or attach your comments.
• Facsimile (fax): 727–824–5309.
• Mail: NMFS, Southeast Regional
Office, 263 13th Avenue South, St.
Petersburg, FL 33701.
• Hand delivery: You may hand
deliver written information to our office
SUMMARY:
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during normal business hours at the
street address given above.
Instructions: Comments sent by any
other method, to any other address or
individual, or received after the end of
the comment period, may not be
considered by NMFS. All comments
received are part of the public record
and may be posted to https://
www.regulations.gov without change.
All personal identifying information
(e.g., name, address), confidential
business information, or otherwise
sensitive information submitted
voluntarily by the sender will be
publicly accessible. We will accept
anonymous comments (enter ‘‘N/A’’ in
the required fields if you wish to remain
anonymous). Attachments to electronic
comments will be accepted in Microsoft
Word, Excel, or Adobe PDF file formats
only.
FOR FURTHER INFORMATION CONTACT:
Kelly Shotts, NMFS, Southeast Region,
727–824–5312; or Marta Nammack,
NMFS, Office of Protected Resources,
301–427–8469.
SUPPLEMENTARY INFORMATION:
Background
In 1997, we added Alabama shad to
our Candidate Species List (62 FR
37562; July 14, 1997). At that time, a
candidate species was defined as any
species being considered by the
Secretary of Commerce (Secretary) for
listing as an endangered or a threatened
species, but not yet the subject of a
proposed rule (49 FR 38900; October 1,
1984). In 2004, we created the Species
of Concern list (69 FR 19975; April 15,
2004) to encompass species for which
we have some concerns regarding their
status and threats, but for which
insufficient information is available to
indicate a need to list the species under
the ESA. Twenty-five candidate species,
including the Alabama shad, were
transferred to the Species of Concern list
at that time because they were not being
considered for ESA listing and were
better suited for Species of Concern
status due to some concerns and
uncertainty regarding their biological
status and threats. The Species of
Concern status does not carry any
procedural or substantive protections
under the ESA.
On April 20, 2010, the Center for
Biological Diversity (CBD), Alabama
Rivers Alliance, Clinch Coalition,
Dogwood Alliance, Gulf Restoration
Network, Tennessee Forests Council,
and the West Virginia Highlands
Conservancy (petitioners) submitted a
petition to the Secretaries of Interior and
Commerce, as well as to the Regional
Director of the Southeast Region of the
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U.S. Fish and Wildlife Service
(USFWS), to list 404 aquatic, riparian,
and wetland species from the
southeastern United States as threatened
or endangered under the ESA. The
petitioners also requested that critical
habitat be designated for all petitioned
species. We notified the USFWS’
Southeast Region by letter dated May 3,
2010, that the Alabama shad, one of the
404 petitioned species, would fall under
NMFS’ jurisdiction based on the August
1974 Memorandum of Understanding
regarding jurisdictional responsibilities
and listing procedures between the two
agencies. We proposed to USFWS that
NMFS evaluate the petition, for the
Alabama shad only, for the purpose of
the 90-day finding and any required
subsequent listing action. On May 14,
2010, we sent the petitioners
confirmation we would be evaluating
the petition for Alabama shad. On
February 17, 2011, we published a
negative 90-day finding in the Federal
Register (76 FR 9320) stating that the
petition did not present substantial
scientific or commercial information
indicating that the requested listing of
Alabama shad may be warranted.
On April 28, 2011, in response to the
negative 90-day finding, CBD filed a
notice of intent to sue DOC and NMFS
for alleged violations of the ESA in
making its finding. CBD filed the
lawsuit in the U.S. District Court for the
District of Columbia on January 18,
2012. On June 21, 2013, CBD and DOC/
NMFS settled the lawsuit, and we
agreed to reevaluate the original listing
petition and publish a new 90-day
finding. Here we reevaluate the
information provided in the 2010
petition, as well as information in our
files, including some additional
information since the 90-day finding
published on February 17, 2011.
ESA Statutory and Regulatory
Provisions and Evaluation Framework
Section 4(b)(3)(A) of the ESA of 1973,
as amended (U.S.C. 1531 et seq.),
requires, to the maximum extent
practicable, that within 90 days of
receipt of a petition to list a species as
threatened or endangered, the Secretary
make a finding on whether that petition
presents substantial scientific or
commercial information indicating that
the petitioned action may be warranted,
and to promptly publish such finding in
the Federal Register (16 U.S.C.
1533(b)(3)(A)). When we find that
substantial scientific or commercial
information indicates that the petitioned
action may be warranted (a ‘‘positive 90day finding’’), we are required to
promptly commence a review of the
status of the species concerned during
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which we will conduct a comprehensive
review of the best available scientific
and commercial information. In such
cases, we are to conclude the review
with a finding as to whether, in fact, the
petitioned action is warranted within 12
months of receipt of the petition.
Because the finding at the 12-month
stage is based on a more thorough
review of the available information, as
compared to the narrow scope of review
at the 90-day stage, a ‘‘may be
warranted’’ finding does not prejudge
the outcome of the status review.
Under the ESA, a listing
determination may address a ‘‘species,’’
which is defined to also include
subspecies and, for any vertebrate
species, any distinct population
segment (DPS) that interbreeds when
mature (16 U.S.C. 1532(16)). A joint
NOAA and USFWS policy clarifies the
agencies’ interpretation of the phrase
‘‘distinct population segment’’ for the
purposes of listing, delisting, and
reclassifying a species under the ESA
(‘‘DPS Policy’’; 61 FR 4722; February 7,
1996). A species, subspecies, or DPS is
‘‘endangered’’ if it is in danger of
extinction throughout all or a significant
portion of its range, and ‘‘threatened’’ if
it is likely to become endangered within
the foreseeable future throughout all or
a significant portion of its range (ESA
sections 3(6) and 3(20), respectively; 16
U.S.C. 1532(6) and (20)). Pursuant to the
ESA and our implementing regulations,
we determine whether species are
threatened or endangered because of
any one or a combination of the five
factors found in section 4(a)(1): (A) The
present or threatened destruction,
modification, or curtailment of habitat
or range; (B) overutilization for
commercial, recreational, scientific, or
educational purposes; (C) disease or
predation; (D) inadequacy of existing
regulatory mechanisms; or, (E) any other
natural or manmade factors affecting the
species’ existence (16 U.S.C. 1533(a)(1),
50 CFR 424.11(c)).
ESA-implementing regulations issued
jointly by NMFS and USFWS (50 CFR
424.14(b)) define ‘‘substantial
information’’ in the context of reviewing
a petition to list, delist, or reclassify a
species as the amount of information
that would lead a reasonable person to
believe that the measure proposed in the
petition may be warranted. In evaluating
whether substantial information is
contained in a petition, the Secretary
must consider whether the petition: (1)
Clearly indicates the administrative
measure recommended and gives the
scientific and any common name of the
species involved; (2) contains detailed
narrative justification for the
recommended measure, describing,
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based on available information, past and
present numbers and distribution of the
species involved and any threats faced
by the species; (3) provides information
regarding the status of the species over
all or a significant portion of its range;
and, (4) is accompanied by the
appropriate supporting documentation
in the form of bibliographic references,
reprints of pertinent publications,
copies of reports or letters from
authorities, and maps (50 CFR
424.14(b)(2)).
We evaluate the petitioner’s request
based upon the information in the
petition including its references, and the
information readily available in our
files. We will accept the petitioner’s
sources and characterizations of the
information presented if they appear to
be based on accepted scientific
principles, unless we have specific
information in our files that indicates
that the petition’s information is
incorrect, unreliable, obsolete, or
otherwise irrelevant to the requested
action. Information that is susceptible to
more than one interpretation or that is
contradicted by other available
information will not be dismissed at the
90-day finding stage, so long as it is
reliable and a reasonable person would
conclude it supports the petitioner’s
assertions. In other words, conclusive
information indicating the species may
meet the ESA’s requirements for listing
is not required to make a positive 90day finding. We will not conclude that
a lack of specific information alone
negates a positive 90-day finding, if a
reasonable person would conclude that
the unknown information itself suggests
an extinction risk of concern for the
species at issue.
To make a 90-day finding on a
petition to list a species, we evaluate
whether the petition or information
readily available in our files presents
substantial scientific or commercial
information indicating the subject
species may be either threatened or
endangered, as defined by the ESA.
First, we evaluate whether the
information presented in the petition,
along with the information readily
available in our files, indicates that the
petitioned entity constitutes a ‘‘species’’
eligible for listing under the ESA. Next,
we evaluate whether the information
indicates that the species at issue faces
extinction risk that is cause for concern;
this may be indicated in information
expressly discussing the species’ status
and trends, or in information describing
impacts and threats to the species. We
evaluate any information on specific
demographic factors pertinent to
evaluating extinction risk for the species
at issue (e.g., population abundance and
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trends, productivity, spatial structure,
age structure, sex ratio, diversity,
current and historical range, habitat
integrity or fragmentation), and the
potential contribution of identified
demographic risks to extinction risk for
the species. We then evaluate the
potential links between these
demographic risks and the causative
impacts and threats identified in section
4(a)(1). We do not conduct additional
research, and we do not solicit
information from parties outside the
agency to help us in evaluating the
petition.
Court decisions clarify the
appropriate scope and limitations of the
Services’ review of petitions at the 90day finding stage, in making a
determination whether a petitioned
action ‘‘may be’’ warranted. As a general
matter, these decisions hold that a
petition need not establish a ‘‘strong
likelihood’’ or a ‘‘high probability’’ that
a species is either threatened or
endangered to support a positive 90-day
finding.
Information available on impacts or
threats should be specific to the species
and should reasonably suggest that one
or more of these factors may be
operative threats that act or have acted
on the species to the point that it may
warrant protection under the ESA.
Broad statements about generalized
threats to the species, or identification
of factors that could negatively impact
a species, do not constitute substantial
information that listing may be
warranted. We look for information
indicating that not only is the particular
species exposed to a factor, but that the
species may be responding in a negative
fashion; then we assess the potential
significance of that negative response.
Many petitions identify risk
classifications made by other
organizations or agencies, such as the
International Union on the Conservation
of Nature (IUCN), the American
Fisheries Society (AFS), or NatureServe,
as evidence of extinction risk for a
species. Risk classifications by other
organizations or made under other
Federal or state statutes may be
informative, but the classification alone
may not provide the rationale for a
positive 90-day finding under the ESA.
For example, as explained by
NatureServe, their assessments of a
species’ conservation status do ‘‘not
constitute a recommendation by
NatureServe for listing under the U.S.
Endangered Species Act’’ because
NatureServe assessments ‘‘have
different criteria, evidence
requirements, purposes, and taxonomic
coverage than government lists of
endangered and threatened species, and
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therefore these two types of lists should
not be expected to coincide’’ (https://
www.natureserve.org/prodServices/
statusAssessment.jsp). Thus, when a
petition cites such classifications, we
will evaluate the source information
that the classification is based upon, in
light of the standards on extinction risk
and impacts or threats discussed above.
Alabama Shad Species Description
The Alabama shad (Alosa alabamae)
is a euryhaline (adapted to a wide range
of salinities), anadromous species that
spawns in medium to large flowing
rivers from the Mississippi River
drainage to the Suwannee River,
Florida. Alabama shad belong to the
family Clupeidae and are closely related
to, as well as similar in appearance and
life history to, the American shad (A.
sapidissima). They also resemble the
skipjack herring (A. chrysochloris),
which occurs in the same areas as
Alabama shad. Defining characteristics
of the Alabama shad are an upper jaw
with a distinct median notch, and the
number of gill rakers (41 to 48) on the
lower limb of the anterior gill arch.
Alabama shad differ morphologically
from other Alosa species that occur in
the same area by a lower jaw that does
not protrude beyond the upper jaw,
black spots along the length of the lower
jaw, and a dorsal fin that lacks an
elongated filament.
Alabama shad are a schooling fish;
many individuals swim at the same
speed and in the same direction.
Research in the Pascagoula River system
indicates that Alabama shad move
between different riverine habitats
seasonally during their first year of life
(age 0). In early summer (June to midJuly) small juveniles were found to use
sandbar habitats, then move to open
channel and steep bank habitats
containing large woody debris in late
summer and fall (Mickle, 2006). Within
these habitat types, Alabama shad tend
to select cooler water temperatures
(Mickle, 2006). While little is known of
the Alabama shad’s thermal tolerance,
alosines in general are known to be
highly sensitive to thermal stress
(McCauley and Binkowski, 1982;
Beitinger et al., 2000). Juvenile growth
rate is about 1.2 inches (30 millimeters
[mm]) per month from July to
September and then 0.4 inches (10 mm)
per month until December. Juveniles
remain in fresh water for the first 6 to
8 months of their lives, feeding on small
fishes and invertebrates (Ross, 2001)
and move into the marine environment
between September and December
(Mickle et al., 2010) when they are
about 2 to 5 inches total length (TL; 50
to 130 mm). There are almost no data
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describing the marine life stage of
Alabama shad (Mettee and O’Neil, 2003;
Mickle et al., 2010).
Alabama shad move back into
freshwater to spawn. Males appear to
enter the river at earlier dates and lower
water temperatures than females
(Laurence and Yerger, 1966). Arrival at
upstream spawning sites also varies by
age (Mettee and O’Neil, 2003). Adults
broadcast spawn in the spring or early
summer over coarse sand and gravel
sediments with moderate currents when
river temperatures are between 66–72°F
(19–22°C; Mettee and O’Neil, 2003).
Adults are thought to feed on small fish,
though they likely do not feed during
the spawning run (Laurence and Yerger,
1967). Females become larger than
males, reaching a little over 18 inches
TL (467 mm), while males reach 16.5
inches TL (418 mm; Mettee and O’Neil,
2003). Age-2 and -3 adults are the most
prevalent age class of spawning adults
(Laurence and Yerger, 1967; Mettee and
O’Neil, 2003; Ingram, 2007). Repeat
spawning is common, but the
percentage of returning spawners is
highly variable among years. Annual
fecundity ranges from approximately
16,000 to 360,000 eggs per female
(Mettee and O’Neil, 2003; Ingram, 2007).
Some natal homing tendency is
evidenced by genetic differences among
drainage basins (Bowen, 2005). The
Alabama shad is relatively short lived,
up to 6 years (Mettee and O’Neil, 2003).
Analysis of the Petition
First, we evaluated whether the
petition presented the information
indicated in 50 CFR 424.14(b)(2). The
petition clearly indicates the
administrative measure recommended
and gives the scientific and common
names of the taxonomically valid
species involved. It contains a narrative
justification for the recommended
measure, describing the distribution of
the species, as well as the threats faced
by the species, and it is accompanied by
supporting documentation in the form
of bibliographic references. The petition
presented very limited information to
support the petitioned action. However,
we have additional information in our
files that was not provided in the
petition to list the Alabama shad,
including the abundance, age structure,
and genetic make-up of the Alabama
shad in the Apalachicola River, which
we discuss in more detail below. We
also have additional information
clarifying the current range of the
species. As stated in our prior 90-day
finding (February 17, 2011), we
periodically review our Species of
Concern list to evaluate whether species
should be retained or removed from the
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list or proposed for listing under the
ESA, and we announced our intent to
release a biological review of the
species. We considered information in
the biological review, publicly released
in 2011 (Smith et al., 2011), to make this
90-day finding in response to the
petition. Based on the information
acquired in our files since publication of
the prior finding, primarily the
biological review by Smith et al. (2011),
we find that substantial scientific or
commercial information exists
indicating that the petitioned action
may be warranted.
The petition states that Alabama shad
have likely experienced both dramatic
long-term population declines and
short-term population declines of as
much as 30 percent, and attributes these
trends to habitat loss and degradation
caused by impoundments, pollution,
dredging, and other factors. The petition
also states that commercial fishing in
the Ohio River was a threat historically.
While commercial fishing is no longer a
threat, over-exploitation for recreational,
scientific, or educational purposes,
including intentional eradication or
indirect impacts of fishing, were cited
by the petition as possible threats to the
species. The petition states that it is
unknown whether Alabama shad are
‘‘appropriately protected,’’ noting the
lack of fish passage at locks and dams
as a primary management concern, and
cites lack of regulatory protections
associated with classifications assigned
to Alabama shad by IUCN, NatureServe,
AFS, the NMFS Species of Concern
Program, and the states of Mississippi,
Alabama, and Georgia. Other factors,
such as pollution, sedimentation, and
drought, are cited in the petition as
contributing to declines in shad
populations. Thus, the petition states
that four of the five causal factors in
section 4(a)(1) of the ESA are adversely
affecting the continued existence of
Alabama shad: habitat modification and
degradation due to dams, dredging, and
pollution; overutilization in historical
commercial fisheries and continued
indirect effects from fishing and
eradication programs; inadequacy of
existing regulatory mechanisms
associated with current status
classifications; and other natural or
manmade factors, such as pollution,
sedimentation, and drought.
Evaluation of Information on Species
Status
The petition states that Alabama shad
has undergone a major geographic
contraction of its historical range that
originally spanned the Gulf Coast from
the Suwannee River, Florida, to the
Mississippi River, and westward in the
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Ouachita River system (Arkansas/
Louisiana) to eastern Oklahoma. The
petition states that the species’ current
range includes the Apalachicola River
system below Jim Woodruff Lock and
Dam (JWLD); the Pascagoula River
drainage in Mississippi; the Conecuh,
Choctawhatchee, and Mobile Rivers in
Alabama; the Ouachita River, Arkansas;
and, the Missouri, Gasconade, Osage,
and Meramec Rivers, Missouri.
Information in our files indicates that
the current range of Alabama shad is
larger than that described in the
petition. In addition to the rivers listed
in the petition, the current range of
Alabama shad includes the
Apalachicola, Chattahoochee, Flint
(ACF) River system above JWLD in
Florida/Georgia/Alabama, the Pea River
in Alabama, the Pearl River in
Louisiana/Mississippi, and the Little
Missouri River in Arkansas (Smith et al.,
2011).
The petition describes Alabama shad
populations as ‘‘small’’ and states that
the species is considered ‘‘very rare’’ in
large portions of its historical range. The
petition cites a NatureServe (2008)
estimate that 6 to 20 populations of
Alabama shad remain, but neither the
petition nor NatureServe (2008) specify
the location of those populations, the
size of the populations, or the number,
locations, and size of historical Alabama
shad populations for comparison. The
petition includes an observation by
Mettee et al. (1996) that ‘‘there are only
two known remaining runs of Alabama
shad in the Mississippi River System
and other spawning runs occur in the
Florida Panhandle and southern
Alabama.’’ The petition also presents
conclusions by Mettee and O’Neil
(2003) that spawning populations of
shad are ‘‘relatively small.’’
After submission of the petition and
publication of the prior finding, Smith
et al. (2011) conducted an extensive
search of publications, technical reports,
and theses, and surveyed universities,
state and Federal facilities, and nonprofit organizations throughout the
Alabama shad’s historical range for any
recent (since 2000) recorded captures. In
some systems (e.g., Choctawhatchee
River, Alabama; Apalachicola/Flint
River System, Florida/Georgia; and
Pascagoula/Leaf River system,
Mississippi), hundreds to thousands of
Alabama shad have been documented
since 2000. Records for some systems
(e.g., Conecuh River and Mobile Bay,
Alabama; Suwannee and Withlacoochee
Rivers, Florida; Thibodaux Weir,
Louisiana; Chickasawhay River,
Mississippi; and, Gasconade River,
Missouri) documented less than 25
Alabama shad since 2000. In many
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systems (e.g., Pea River, Alabama/
Florida; Chattahoochee River, Georgia;
and, Lake Pontchartrain, Louisiana),
Alabama shad have been recorded in
those systems since 2000, but the
number of Alabama shad observed or
captured was not provided in the
records. No records of Alabama shad
captures or observations since 2000
were found for many systems
historically occupied by Alabama shad.
It is not clear from the available
information whether targeted studies
were performed and shad were not
present, or if the lack of Alabama shad
data is due to the absence of studies or
record-keeping in regards to the species.
The NatureServe (2008) classification
and literature cited by the petition, as
well as the information in our files, do
not present estimates for historical or
current abundance of Alabama shad for
comparison and evaluation. However,
the low numbers of Alabama shad (less
than 25) documented in some rivers and
the lack of records of the species in
some historically occupied rivers since
2000 (Smith et al. 2011) indicate that
there may be cause for concern over
declines in some systems currently and
historically occupied by Alabama shad.
The petition cites various status
classifications made by the IUCN,
NatureServe, AFS, and our Species of
Concern program to support its
assertion that Alabama shad should be
listed as threatened or endangered
under the ESA. We do not give any
particular weight to classifications
established by other scientific and
conservation organizations, which may
or may not be based on criteria that
directly correspond to the listing
standards of the ESA. However, we have
reviewed and evaluated the underlying
information used to develop the various
classifications given to Alabama shad by
entities listed in the petition.
The petition cites the IUCN’s 2010
classification of Alabama shad as
‘‘endangered.’’ We found the IUCN
updated its classification of Alabama
shad in 2012, relying on a more current
assessment of the species (citing
NatureServe as the ‘‘assessor’’), and
reclassified the status from
‘‘endangered’’ to ‘‘data deficient.’’ The
IUCN provided justification for their
data deficient classification, stating
there have been declines in the
populations and geographic range of the
species but ‘‘there has been no
quantification of the rate of range or
population decline’’ of the Alabama
shad. NatureServe (2008) assigned
Alabama shad a rank of ‘‘G3’’ or
‘‘vulnerable’’ given the species’ limited
distribution in Gulf of Mexico
tributaries, reduction in population due
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to the effects of dams in blocking
spawning migration, and degradation of
habitat by siltation and pollutants.
NatureServe (2008) described the
Alabama shad’s short-term trend as
‘‘relatively stable to decline of 30
percent’’ and the long-term trend as
‘‘relatively stable to decline of 70
percent’’. The petition also included the
2008 AFS determination that Alabama
shad were ‘‘threatened’’ (in imminent
danger of becoming endangered
throughout all or a significant portion of
its range) based on (1) present or
threatened destruction, modification, or
reduction of habitat or range, and (2)
over-exploitation for commercial,
recreational, scientific, or educational
purposes. The AFS designation did not
provide any information on historical or
current numbers, populations, or rates
of decline, and also relies on
NatureServe’s (2008) ranking of ‘‘G3/
vulnerable’’ (discussed in the previous
section of this finding).
The petitioner also cited our
classification of the Alabama shad as a
NMFS species of concern as reason to
support an ESA listing. As previously
noted, Alabama shad became a NMFS
Species of Concern in 2004 when it was
reclassified from a Candidate Species.
We considered the entirety of the
scientific and commercial information
available to us on the apparent
population decline of Alabama shad and
the threats that contributed to the
apparent decline when we classified
Alabama shad as a Species of Concern
in 2004. By definition, a Species of
Concern is one for which we have some
concerns regarding status and threats,
but for which insufficient information
was available at the time of
classification to indicate a need to list
the species under the ESA. Our own
Species of Concern designation does not
include a specific analysis of extinction
risk for Alabama shad, or an analysis of
population size or trends, or other
information directly addressing whether
the species faces extinction risk that is
cause for concern and may warrant
listing.
In addition to these classifications by
national and international
organizations, the petition provided
information that Alabama shad is
considered by the states of Mississippi,
Alabama, and Georgia to be of high
conservation concern. Mississippi,
Alabama, and Georgia did not provide
population abundance estimates,
population trends, or additional
information supporting their
classifications.
Information currently available in our
files provides information on the
abundance and increase of the species
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in one river system, as well as insight
into the species’ resilience. Abundance
of Alabama shad varied greatly between
2005–2007 (∼2,000–26,000) as described
by Ely et al. (2008) and was lower than
expected based on a comparison with
American shad in the Savannah and
Altamaha Rivers (100,000–200,000).
Ingram (2007) compared growth and age
class structure of Alabama shad in the
Apalachicola River in 2005–2006 with
results from studies conducted in 1967
and 1972 and indicated that the current
population structure, with fewer age
classes and an earlier age at maturity,
was indicative of a declining
population. Ingram (2007) also noted
that when a population includes only a
few year classes, abundance can
rebound quickly when environmental
conditions change (Rutherford et al.,
1992). Fluctuations in abundance of
American shad were noted by Ely et al.
(2008) and are well documented by
others (Hattala et al., 1996; Atlantic
States Marine Fisheries Commission,
1998; Moring, 2005). Ely et al. (2008)
concluded that commonly observed
variations in year-class strength suggest
Alabama shad are resilient and capable
of quickly increasing in number under
favorable conditions.
Evaluation of Information on Threats to
the Species
The bulk of the information in the
petition is an overview of many of the
past and ongoing categories of threats
that are believed to have contributed
collectively to the decline of 404
aquatic, riparian, and wetland species in
the Southeast. The majority of the
information on threats in the petition is
either general for all 404 species with no
clear linkage to Alabama shad or is
specifically linked to other species or to
habitats not occupied by Alabama shad.
The petition states that four of the five
causal factors in section 4(a)(1) of the
ESA are adversely affecting the
continued existence of Alabama shad:
(A) Present or threatened destruction,
modification, or curtailment of its
habitat or range; (B) overutilization for
the commercial, recreational, scientific,
or educational purposes; (C) inadequacy
of regulatory mechanisms; and, (D)
other natural or manmade factors.
The petition states that Alabama shad
have been cut off from many historical
spawning areas by dams and locks,
citing Robison and Buchanan (1988),
Etnier (1997), and Mirarchi et al. (2004).
Dams can block access to upriver
spawning sites for anadromous species,
as well as alter downstream flow
regimes. Dams are present on some
rivers that are occupied by Alabama
shad. The petition did not provide
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57615
substantial information quantifying the
extent to which shad populations have
been reduced by the presence of dams,
and we have no such information in our
files. However, there is some
information in our files suggesting that
dams may be resulting in reduced
populations in some rivers.
Beginning in 2005, a cooperative
study supported by multiple local,
academic, state, and Federal
conservation partners, including NMFS,
started tracking movements of Alabama
shad and other fish species in the
Apalachicola River (USFWS, 2008; Ely
et al., 2008; TNC, 2010). The study also
evaluated the feasibility of moving fish
upriver of JWLD, located at the
confluence of the Chattahoochee and
Flint Rivers, which presents the first
major obstacle on the Apalachicola
River to the upstream migration of
Alabama shad to their historical
spawning grounds. The results of this
collaborative study showed that the
existing lock at JWLD could be operated
to allow fish to move upriver through
the lock where they could access
spawning habitat.
Based on these results, the U.S. Army
Corps of Engineers (USACE) began
‘‘conservation locking’’ (operating the
lock at JWLD to provide Alabama shad
access to upstream habitat) in 2008. The
locks are operated twice a day to
correspond with the natural movement
patterns of migrating fish during
spawning seasons (February through
May) each year. Since conservation
locking began, Alabama shad have been
found to pass upstream of the lock with
45 percent efficiency (Young, 2010) and,
as a result, can access over 150 miles
(241.4 km) of historical habitat and
spawning areas in the ACF River System
for the first time in more than 50 years
(TNC, 2010). Young (2010) estimated
the number of Alabama shad in the ACF
River System at 98,469 in 2010, almost
four times larger than the previous high
estimate of 25,935 in 2005 (Ely et al.,
2008). The number of Alabama shad in
the Apalachicola River in 2011 was
estimated at 26,193 and was lower than
the 2010 value but slightly higher than
the maximum abundance in the 2005–
2009 period (Young, 2011). The major
difference between the 2010 and 2011
Alabama shad spawning runs was a lack
of age-1 males in 2011 (Young, 2011).
Notably, the 2011 run was dominated by
older, larger adult females in excellent
condition, a potential indicator of strong
year classes in the future (Young, 2011).
Sammons and Young (2012) provided
the most recent report from the
Apalachicola River, estimating the
number of Alabama shad at 122,578 in
2012 (the largest since 2005). This
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spawning run was composed of many
males presumed to be from the 2010
year class, as well as numerous older,
larger adults of both sexes (presumably
recruits from 2009). Sammons and
Young (2012) noted that a year of higher
than average flows in 2009 may have
contributed to spawning and
recruitment successes in 2010 and 2012.
Sammons and Young (2012) also noted
that alosine population sizes commonly
fluctuate widely.
Smith et al. (2011) conducted a
population viability analysis (PVA) of
Alabama shad in the ACF River System.
A PVA is a modeling tool that estimates
the future size and risk of extinction for
populations of organisms. Smith et al.
(2011) estimated returning female
abundance in 20 years relative to
current numbers and predicted that the
ACF population is increasing and under
present conditions could reach carrying
capacity in about 40 years. The PVA
indicated significant declines in
abundance only in modeled scenarios
with the highest levels and frequencies
of mortality (Smith et al., 2011).
We provided funds to USFWS to
complete a genetic study on Alabama
shad in the Apalachicola River, Florida
(Moyer, 2012). The study assessed
genetic parameters that may influence
its extinction risk. Moyer (2012)
determined that there is no observable
genetic structure in Alabama shad in the
Apalachicola River and that the species
exhibits low amounts of genetic
diversity.
The conservation locking program in
the ACF River System and PVA on the
ACF River Alabama shad demonstrated
that the species is resilient and is
responding positively to increased
spawning habitat access. However, this
may not be the case in other river
systems historically occupied by
Alabama shad. The petition relates the
construction of dams built on the lower
Tombigbee and Alabama Rivers in the
1960s to ‘‘steep declines in shad
populations’’ in the Mobile River Basin
(Barkuloo et al., 1993; Mettee and
O’Neil, 2003; NatureServe, 2008). While
there is no information in the petition
or our files quantifying declines in
Alabama shad populations due to dams,
Smith et al. (2011) found no records of
Alabama shad in the Tombigbee and
Alabama Rivers (the examples presented
in the petition) since 2000. Therefore,
the information presented in the
petition and in our files indicates that
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Alabama shad populations in some
rivers may have declined and causes us
to be concerned that habitat
modification may pose a significant risk
to Alabama shad.
In addition to the information on the
present and threatened destruction,
modification, or curtailment of habitat
or range, the petitioner provided
information regarding the inadequacy of
regulatory mechanisms and other
natural or manmade factors that may
cause a significant threat to the Alabama
shad. However, because we have
determined that the information
available on the present and threatened
destruction, modification, or
curtailment of habitat or range may be
a cause for concern for Alabama shad,
we do not find a need to conduct a
detailed analysis of the other submitted
information here.
Petition Finding
We have determined after reviewing
information readily available in our files
that there is substantial information
indicating that the petitioned action
may be warranted. Under section
4(b)(3)(A) of the ESA, an affirmative 90day finding requires that we promptly
commence a status review of the
petitioned species (16 U.S.C. 1533
(b)(3)(A)).
Information Solicited
To ensure that the status review is
based on the best available scientific
and commercial data, we are soliciting
information on the status of the
Alabama shad throughout its range
including: (1) Historical and current
distribution and abundance, including
data addressing presence or absence at
a riverine scale; (2) historical and
current population sizes and trends; (3)
biological information (life history,
genetics, population connectivity, etc.);
(4) landings and trade data; (5)
management, regulatory, and
enforcement information; (6) any
current or planned activities that may
adversely impact the species; and (7)
ongoing or planned efforts to protect
and restore the species and their
habitats. We request that all information
be accompanied by: (1) Supporting
documentation such as maps,
bibliographic references, or reprints of
pertinent publications; and (2) the
submitter’s name, address, and any
association, institution, or business that
the person represents. Section 4(b)(1)(A)
of the ESA and NMFS’ implementing
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regulations (50 CFR 424.11(b)) require
that a listing determination be based
solely on the best scientific and
commercial data, without consideration
of possible economic or other impacts of
the determination. During the 60-day
public comment period we are seeking
information related only to the status of
the Alabama shad throughout its range.
Peer Review
On July 1, 1994, NMFS and the U.S.
Fish and Wildlife Service published a
series of policies regarding listings
under the ESA, including a policy for
peer review of scientific data (59 FR
34270). The intent of the peer review
policy is to ensure listings are based on
the best scientific and commercial data
available. The Office of Management
and Budget issued its Final Information
Quality Bulletin for Peer Review on
December 16, 2004. The Bulletin went
into effect June 16, 2005, and generally
requires that all ‘‘influential scientific
information’’ and ‘‘highly influential
scientific information’’ disseminated on
or after that date be peer reviewed.
Because the information used to
evaluate this petition may be considered
‘‘influential scientific information,’’ we
solicit the names of recognized experts
in the field that could take part in the
peer review process for this status
review (see ADDRESSES). Independent
peer reviewers will be selected from the
academic and scientific community,
tribal and other Native American
groups, Federal and state agencies, the
private sector, and public interest
groups.
References Cited
A complete list of all references is
available upon request from the
Protected Resources Division of the
NMFS Southeast Regional Office (see
ADDRESSES).
Authority
The authority for this action is the
Endangered Species Act of 1973, as
amended (16 U.S.C. 1531 et seq.).
Dated: September 13, 2013.
Alan D. Risenhoover,
Director, Office of Sustainable Fisheries,
performing the functions and duties of the
Deputy Assistant Administrator for
Regulatory Programs, National Marine
Fisheries Service.
[FR Doc. 2013–22869 Filed 9–18–13; 8:45 am]
BILLING CODE 3510–22–P
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[Federal Register Volume 78, Number 182 (Thursday, September 19, 2013)]
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[Pages 57611-57616]
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[FR Doc No: 2013-22869]
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DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric Administration
50 CFR Parts 223 and 224
[Docket No. 130626570-3570-01]
RIN 0648-XC742
Endangered and Threatened Wildlife; 90-Day Finding on a Petition
To List Alabama Shad as Threatened or Endangered Under the Endangered
Species Act
AGENCY: National Marine Fisheries Service (NMFS), National Oceanic and
Atmospheric Administration (NOAA), Department of Commerce (DOC).
ACTION: Notice of 90-day petition finding, request for information.
-----------------------------------------------------------------------
SUMMARY: We (NMFS) announce a 90-day finding on a petition to list
Alabama shad (Alosa alabamae) as threatened or endangered under the
Endangered Species Act (ESA) and to designate critical habitat
concurrent with the listing. We find that the information in our files
presents substantial scientific or commercial information indicating
that the petitioned action may be warranted. We will conduct a status
review of the species to determine if the petitioned action is
warranted. To ensure that the status review is comprehensive, we are
soliciting scientific and commercial information regarding this species
(see below).
DATES: Information and comments on the subject action must be received
by November 18, 2013.
ADDRESSES: You may submit information, identified by the code NOAA-
NMFS--2013-0142, addressed to: Kelly Shotts, Ecologist, by any of the
following methods:
Electronic Submissions: Submit all electronic information
via the Federal eRulemaking Portal. Go to https://www.regulations.gov/#!docketDetail;D=NOAA-NMFS-2013-0142, click the ``Comment Now!'' icon,
complete the required fields, and enter or attach your comments.
Facsimile (fax): 727-824-5309.
Mail: NMFS, Southeast Regional Office, 263 13th Avenue
South, St. Petersburg, FL 33701.
Hand delivery: You may hand deliver written information to
our office during normal business hours at the street address given
above.
Instructions: Comments sent by any other method, to any other
address or individual, or received after the end of the comment period,
may not be considered by NMFS. All comments received are part of the
public record and may be posted to https://www.regulations.gov without
change. All personal identifying information (e.g., name, address),
confidential business information, or otherwise sensitive information
submitted voluntarily by the sender will be publicly accessible. We
will accept anonymous comments (enter ``N/A'' in the required fields if
you wish to remain anonymous). Attachments to electronic comments will
be accepted in Microsoft Word, Excel, or Adobe PDF file formats only.
FOR FURTHER INFORMATION CONTACT: Kelly Shotts, NMFS, Southeast Region,
727-824-5312; or Marta Nammack, NMFS, Office of Protected Resources,
301-427-8469.
SUPPLEMENTARY INFORMATION:
Background
In 1997, we added Alabama shad to our Candidate Species List (62 FR
37562; July 14, 1997). At that time, a candidate species was defined as
any species being considered by the Secretary of Commerce (Secretary)
for listing as an endangered or a threatened species, but not yet the
subject of a proposed rule (49 FR 38900; October 1, 1984). In 2004, we
created the Species of Concern list (69 FR 19975; April 15, 2004) to
encompass species for which we have some concerns regarding their
status and threats, but for which insufficient information is available
to indicate a need to list the species under the ESA. Twenty-five
candidate species, including the Alabama shad, were transferred to the
Species of Concern list at that time because they were not being
considered for ESA listing and were better suited for Species of
Concern status due to some concerns and uncertainty regarding their
biological status and threats. The Species of Concern status does not
carry any procedural or substantive protections under the ESA.
On April 20, 2010, the Center for Biological Diversity (CBD),
Alabama Rivers Alliance, Clinch Coalition, Dogwood Alliance, Gulf
Restoration Network, Tennessee Forests Council, and the West Virginia
Highlands Conservancy (petitioners) submitted a petition to the
Secretaries of Interior and Commerce, as well as to the Regional
Director of the Southeast Region of the
[[Page 57612]]
U.S. Fish and Wildlife Service (USFWS), to list 404 aquatic, riparian,
and wetland species from the southeastern United States as threatened
or endangered under the ESA. The petitioners also requested that
critical habitat be designated for all petitioned species. We notified
the USFWS' Southeast Region by letter dated May 3, 2010, that the
Alabama shad, one of the 404 petitioned species, would fall under NMFS'
jurisdiction based on the August 1974 Memorandum of Understanding
regarding jurisdictional responsibilities and listing procedures
between the two agencies. We proposed to USFWS that NMFS evaluate the
petition, for the Alabama shad only, for the purpose of the 90-day
finding and any required subsequent listing action. On May 14, 2010, we
sent the petitioners confirmation we would be evaluating the petition
for Alabama shad. On February 17, 2011, we published a negative 90-day
finding in the Federal Register (76 FR 9320) stating that the petition
did not present substantial scientific or commercial information
indicating that the requested listing of Alabama shad may be warranted.
On April 28, 2011, in response to the negative 90-day finding, CBD
filed a notice of intent to sue DOC and NMFS for alleged violations of
the ESA in making its finding. CBD filed the lawsuit in the U.S.
District Court for the District of Columbia on January 18, 2012. On
June 21, 2013, CBD and DOC/NMFS settled the lawsuit, and we agreed to
reevaluate the original listing petition and publish a new 90-day
finding. Here we reevaluate the information provided in the 2010
petition, as well as information in our files, including some
additional information since the 90-day finding published on February
17, 2011.
ESA Statutory and Regulatory Provisions and Evaluation Framework
Section 4(b)(3)(A) of the ESA of 1973, as amended (U.S.C. 1531 et
seq.), requires, to the maximum extent practicable, that within 90 days
of receipt of a petition to list a species as threatened or endangered,
the Secretary make a finding on whether that petition presents
substantial scientific or commercial information indicating that the
petitioned action may be warranted, and to promptly publish such
finding in the Federal Register (16 U.S.C. 1533(b)(3)(A)). When we find
that substantial scientific or commercial information indicates that
the petitioned action may be warranted (a ``positive 90-day finding''),
we are required to promptly commence a review of the status of the
species concerned during which we will conduct a comprehensive review
of the best available scientific and commercial information. In such
cases, we are to conclude the review with a finding as to whether, in
fact, the petitioned action is warranted within 12 months of receipt of
the petition. Because the finding at the 12-month stage is based on a
more thorough review of the available information, as compared to the
narrow scope of review at the 90-day stage, a ``may be warranted''
finding does not prejudge the outcome of the status review.
Under the ESA, a listing determination may address a ``species,''
which is defined to also include subspecies and, for any vertebrate
species, any distinct population segment (DPS) that interbreeds when
mature (16 U.S.C. 1532(16)). A joint NOAA and USFWS policy clarifies
the agencies' interpretation of the phrase ``distinct population
segment'' for the purposes of listing, delisting, and reclassifying a
species under the ESA (``DPS Policy''; 61 FR 4722; February 7, 1996). A
species, subspecies, or DPS is ``endangered'' if it is in danger of
extinction throughout all or a significant portion of its range, and
``threatened'' if it is likely to become endangered within the
foreseeable future throughout all or a significant portion of its range
(ESA sections 3(6) and 3(20), respectively; 16 U.S.C. 1532(6) and
(20)). Pursuant to the ESA and our implementing regulations, we
determine whether species are threatened or endangered because of any
one or a combination of the five factors found in section 4(a)(1): (A)
The present or threatened destruction, modification, or curtailment of
habitat or range; (B) overutilization for commercial, recreational,
scientific, or educational purposes; (C) disease or predation; (D)
inadequacy of existing regulatory mechanisms; or, (E) any other natural
or manmade factors affecting the species' existence (16 U.S.C.
1533(a)(1), 50 CFR 424.11(c)).
ESA-implementing regulations issued jointly by NMFS and USFWS (50
CFR 424.14(b)) define ``substantial information'' in the context of
reviewing a petition to list, delist, or reclassify a species as the
amount of information that would lead a reasonable person to believe
that the measure proposed in the petition may be warranted. In
evaluating whether substantial information is contained in a petition,
the Secretary must consider whether the petition: (1) Clearly indicates
the administrative measure recommended and gives the scientific and any
common name of the species involved; (2) contains detailed narrative
justification for the recommended measure, describing, based on
available information, past and present numbers and distribution of the
species involved and any threats faced by the species; (3) provides
information regarding the status of the species over all or a
significant portion of its range; and, (4) is accompanied by the
appropriate supporting documentation in the form of bibliographic
references, reprints of pertinent publications, copies of reports or
letters from authorities, and maps (50 CFR 424.14(b)(2)).
We evaluate the petitioner's request based upon the information in
the petition including its references, and the information readily
available in our files. We will accept the petitioner's sources and
characterizations of the information presented if they appear to be
based on accepted scientific principles, unless we have specific
information in our files that indicates that the petition's information
is incorrect, unreliable, obsolete, or otherwise irrelevant to the
requested action. Information that is susceptible to more than one
interpretation or that is contradicted by other available information
will not be dismissed at the 90-day finding stage, so long as it is
reliable and a reasonable person would conclude it supports the
petitioner's assertions. In other words, conclusive information
indicating the species may meet the ESA's requirements for listing is
not required to make a positive 90-day finding. We will not conclude
that a lack of specific information alone negates a positive 90-day
finding, if a reasonable person would conclude that the unknown
information itself suggests an extinction risk of concern for the
species at issue.
To make a 90-day finding on a petition to list a species, we
evaluate whether the petition or information readily available in our
files presents substantial scientific or commercial information
indicating the subject species may be either threatened or endangered,
as defined by the ESA. First, we evaluate whether the information
presented in the petition, along with the information readily available
in our files, indicates that the petitioned entity constitutes a
``species'' eligible for listing under the ESA. Next, we evaluate
whether the information indicates that the species at issue faces
extinction risk that is cause for concern; this may be indicated in
information expressly discussing the species' status and trends, or in
information describing impacts and threats to the species. We evaluate
any information on specific demographic factors pertinent to evaluating
extinction risk for the species at issue (e.g., population abundance
and
[[Page 57613]]
trends, productivity, spatial structure, age structure, sex ratio,
diversity, current and historical range, habitat integrity or
fragmentation), and the potential contribution of identified
demographic risks to extinction risk for the species. We then evaluate
the potential links between these demographic risks and the causative
impacts and threats identified in section 4(a)(1). We do not conduct
additional research, and we do not solicit information from parties
outside the agency to help us in evaluating the petition.
Court decisions clarify the appropriate scope and limitations of
the Services' review of petitions at the 90-day finding stage, in
making a determination whether a petitioned action ``may be''
warranted. As a general matter, these decisions hold that a petition
need not establish a ``strong likelihood'' or a ``high probability''
that a species is either threatened or endangered to support a positive
90-day finding.
Information available on impacts or threats should be specific to
the species and should reasonably suggest that one or more of these
factors may be operative threats that act or have acted on the species
to the point that it may warrant protection under the ESA. Broad
statements about generalized threats to the species, or identification
of factors that could negatively impact a species, do not constitute
substantial information that listing may be warranted. We look for
information indicating that not only is the particular species exposed
to a factor, but that the species may be responding in a negative
fashion; then we assess the potential significance of that negative
response.
Many petitions identify risk classifications made by other
organizations or agencies, such as the International Union on the
Conservation of Nature (IUCN), the American Fisheries Society (AFS), or
NatureServe, as evidence of extinction risk for a species. Risk
classifications by other organizations or made under other Federal or
state statutes may be informative, but the classification alone may not
provide the rationale for a positive 90-day finding under the ESA. For
example, as explained by NatureServe, their assessments of a species'
conservation status do ``not constitute a recommendation by NatureServe
for listing under the U.S. Endangered Species Act'' because NatureServe
assessments ``have different criteria, evidence requirements, purposes,
and taxonomic coverage than government lists of endangered and
threatened species, and therefore these two types of lists should not
be expected to coincide'' (https://www.natureserve.org/prodServices/statusAssessment.jsp). Thus, when a petition cites such
classifications, we will evaluate the source information that the
classification is based upon, in light of the standards on extinction
risk and impacts or threats discussed above.
Alabama Shad Species Description
The Alabama shad (Alosa alabamae) is a euryhaline (adapted to a
wide range of salinities), anadromous species that spawns in medium to
large flowing rivers from the Mississippi River drainage to the
Suwannee River, Florida. Alabama shad belong to the family Clupeidae
and are closely related to, as well as similar in appearance and life
history to, the American shad (A. sapidissima). They also resemble the
skipjack herring (A. chrysochloris), which occurs in the same areas as
Alabama shad. Defining characteristics of the Alabama shad are an upper
jaw with a distinct median notch, and the number of gill rakers (41 to
48) on the lower limb of the anterior gill arch. Alabama shad differ
morphologically from other Alosa species that occur in the same area by
a lower jaw that does not protrude beyond the upper jaw, black spots
along the length of the lower jaw, and a dorsal fin that lacks an
elongated filament.
Alabama shad are a schooling fish; many individuals swim at the
same speed and in the same direction. Research in the Pascagoula River
system indicates that Alabama shad move between different riverine
habitats seasonally during their first year of life (age 0). In early
summer (June to mid-July) small juveniles were found to use sandbar
habitats, then move to open channel and steep bank habitats containing
large woody debris in late summer and fall (Mickle, 2006). Within these
habitat types, Alabama shad tend to select cooler water temperatures
(Mickle, 2006). While little is known of the Alabama shad's thermal
tolerance, alosines in general are known to be highly sensitive to
thermal stress (McCauley and Binkowski, 1982; Beitinger et al., 2000).
Juvenile growth rate is about 1.2 inches (30 millimeters [mm]) per
month from July to September and then 0.4 inches (10 mm) per month
until December. Juveniles remain in fresh water for the first 6 to 8
months of their lives, feeding on small fishes and invertebrates (Ross,
2001) and move into the marine environment between September and
December (Mickle et al., 2010) when they are about 2 to 5 inches total
length (TL; 50 to 130 mm). There are almost no data describing the
marine life stage of Alabama shad (Mettee and O'Neil, 2003; Mickle et
al., 2010).
Alabama shad move back into freshwater to spawn. Males appear to
enter the river at earlier dates and lower water temperatures than
females (Laurence and Yerger, 1966). Arrival at upstream spawning sites
also varies by age (Mettee and O'Neil, 2003). Adults broadcast spawn in
the spring or early summer over coarse sand and gravel sediments with
moderate currents when river temperatures are between 66-72[deg]F (19-
22[deg]C; Mettee and O'Neil, 2003). Adults are thought to feed on small
fish, though they likely do not feed during the spawning run (Laurence
and Yerger, 1967). Females become larger than males, reaching a little
over 18 inches TL (467 mm), while males reach 16.5 inches TL (418 mm;
Mettee and O'Neil, 2003). Age-2 and -3 adults are the most prevalent
age class of spawning adults (Laurence and Yerger, 1967; Mettee and
O'Neil, 2003; Ingram, 2007). Repeat spawning is common, but the
percentage of returning spawners is highly variable among years. Annual
fecundity ranges from approximately 16,000 to 360,000 eggs per female
(Mettee and O'Neil, 2003; Ingram, 2007). Some natal homing tendency is
evidenced by genetic differences among drainage basins (Bowen, 2005).
The Alabama shad is relatively short lived, up to 6 years (Mettee and
O'Neil, 2003).
Analysis of the Petition
First, we evaluated whether the petition presented the information
indicated in 50 CFR 424.14(b)(2). The petition clearly indicates the
administrative measure recommended and gives the scientific and common
names of the taxonomically valid species involved. It contains a
narrative justification for the recommended measure, describing the
distribution of the species, as well as the threats faced by the
species, and it is accompanied by supporting documentation in the form
of bibliographic references. The petition presented very limited
information to support the petitioned action. However, we have
additional information in our files that was not provided in the
petition to list the Alabama shad, including the abundance, age
structure, and genetic make-up of the Alabama shad in the Apalachicola
River, which we discuss in more detail below. We also have additional
information clarifying the current range of the species. As stated in
our prior 90-day finding (February 17, 2011), we periodically review
our Species of Concern list to evaluate whether species should be
retained or removed from the
[[Page 57614]]
list or proposed for listing under the ESA, and we announced our intent
to release a biological review of the species. We considered
information in the biological review, publicly released in 2011 (Smith
et al., 2011), to make this 90-day finding in response to the petition.
Based on the information acquired in our files since publication of the
prior finding, primarily the biological review by Smith et al. (2011),
we find that substantial scientific or commercial information exists
indicating that the petitioned action may be warranted.
The petition states that Alabama shad have likely experienced both
dramatic long-term population declines and short-term population
declines of as much as 30 percent, and attributes these trends to
habitat loss and degradation caused by impoundments, pollution,
dredging, and other factors. The petition also states that commercial
fishing in the Ohio River was a threat historically. While commercial
fishing is no longer a threat, over-exploitation for recreational,
scientific, or educational purposes, including intentional eradication
or indirect impacts of fishing, were cited by the petition as possible
threats to the species. The petition states that it is unknown whether
Alabama shad are ``appropriately protected,'' noting the lack of fish
passage at locks and dams as a primary management concern, and cites
lack of regulatory protections associated with classifications assigned
to Alabama shad by IUCN, NatureServe, AFS, the NMFS Species of Concern
Program, and the states of Mississippi, Alabama, and Georgia. Other
factors, such as pollution, sedimentation, and drought, are cited in
the petition as contributing to declines in shad populations. Thus, the
petition states that four of the five causal factors in section 4(a)(1)
of the ESA are adversely affecting the continued existence of Alabama
shad: habitat modification and degradation due to dams, dredging, and
pollution; overutilization in historical commercial fisheries and
continued indirect effects from fishing and eradication programs;
inadequacy of existing regulatory mechanisms associated with current
status classifications; and other natural or manmade factors, such as
pollution, sedimentation, and drought.
Evaluation of Information on Species Status
The petition states that Alabama shad has undergone a major
geographic contraction of its historical range that originally spanned
the Gulf Coast from the Suwannee River, Florida, to the Mississippi
River, and westward in the Ouachita River system (Arkansas/Louisiana)
to eastern Oklahoma. The petition states that the species' current
range includes the Apalachicola River system below Jim Woodruff Lock
and Dam (JWLD); the Pascagoula River drainage in Mississippi; the
Conecuh, Choctawhatchee, and Mobile Rivers in Alabama; the Ouachita
River, Arkansas; and, the Missouri, Gasconade, Osage, and Meramec
Rivers, Missouri. Information in our files indicates that the current
range of Alabama shad is larger than that described in the petition. In
addition to the rivers listed in the petition, the current range of
Alabama shad includes the Apalachicola, Chattahoochee, Flint (ACF)
River system above JWLD in Florida/Georgia/Alabama, the Pea River in
Alabama, the Pearl River in Louisiana/Mississippi, and the Little
Missouri River in Arkansas (Smith et al., 2011).
The petition describes Alabama shad populations as ``small'' and
states that the species is considered ``very rare'' in large portions
of its historical range. The petition cites a NatureServe (2008)
estimate that 6 to 20 populations of Alabama shad remain, but neither
the petition nor NatureServe (2008) specify the location of those
populations, the size of the populations, or the number, locations, and
size of historical Alabama shad populations for comparison. The
petition includes an observation by Mettee et al. (1996) that ``there
are only two known remaining runs of Alabama shad in the Mississippi
River System and other spawning runs occur in the Florida Panhandle and
southern Alabama.'' The petition also presents conclusions by Mettee
and O'Neil (2003) that spawning populations of shad are ``relatively
small.''
After submission of the petition and publication of the prior
finding, Smith et al. (2011) conducted an extensive search of
publications, technical reports, and theses, and surveyed universities,
state and Federal facilities, and non-profit organizations throughout
the Alabama shad's historical range for any recent (since 2000)
recorded captures. In some systems (e.g., Choctawhatchee River,
Alabama; Apalachicola/Flint River System, Florida/Georgia; and
Pascagoula/Leaf River system, Mississippi), hundreds to thousands of
Alabama shad have been documented since 2000. Records for some systems
(e.g., Conecuh River and Mobile Bay, Alabama; Suwannee and
Withlacoochee Rivers, Florida; Thibodaux Weir, Louisiana; Chickasawhay
River, Mississippi; and, Gasconade River, Missouri) documented less
than 25 Alabama shad since 2000. In many systems (e.g., Pea River,
Alabama/Florida; Chattahoochee River, Georgia; and, Lake Pontchartrain,
Louisiana), Alabama shad have been recorded in those systems since
2000, but the number of Alabama shad observed or captured was not
provided in the records. No records of Alabama shad captures or
observations since 2000 were found for many systems historically
occupied by Alabama shad. It is not clear from the available
information whether targeted studies were performed and shad were not
present, or if the lack of Alabama shad data is due to the absence of
studies or record-keeping in regards to the species. The NatureServe
(2008) classification and literature cited by the petition, as well as
the information in our files, do not present estimates for historical
or current abundance of Alabama shad for comparison and evaluation.
However, the low numbers of Alabama shad (less than 25) documented in
some rivers and the lack of records of the species in some historically
occupied rivers since 2000 (Smith et al. 2011) indicate that there may
be cause for concern over declines in some systems currently and
historically occupied by Alabama shad.
The petition cites various status classifications made by the IUCN,
NatureServe, AFS, and our Species of Concern program to support its
assertion that Alabama shad should be listed as threatened or
endangered under the ESA. We do not give any particular weight to
classifications established by other scientific and conservation
organizations, which may or may not be based on criteria that directly
correspond to the listing standards of the ESA. However, we have
reviewed and evaluated the underlying information used to develop the
various classifications given to Alabama shad by entities listed in the
petition.
The petition cites the IUCN's 2010 classification of Alabama shad
as ``endangered.'' We found the IUCN updated its classification of
Alabama shad in 2012, relying on a more current assessment of the
species (citing NatureServe as the ``assessor''), and reclassified the
status from ``endangered'' to ``data deficient.'' The IUCN provided
justification for their data deficient classification, stating there
have been declines in the populations and geographic range of the
species but ``there has been no quantification of the rate of range or
population decline'' of the Alabama shad. NatureServe (2008) assigned
Alabama shad a rank of ``G3'' or ``vulnerable'' given the species'
limited distribution in Gulf of Mexico tributaries, reduction in
population due
[[Page 57615]]
to the effects of dams in blocking spawning migration, and degradation
of habitat by siltation and pollutants. NatureServe (2008) described
the Alabama shad's short-term trend as ``relatively stable to decline
of 30 percent'' and the long-term trend as ``relatively stable to
decline of 70 percent''. The petition also included the 2008 AFS
determination that Alabama shad were ``threatened'' (in imminent danger
of becoming endangered throughout all or a significant portion of its
range) based on (1) present or threatened destruction, modification, or
reduction of habitat or range, and (2) over-exploitation for
commercial, recreational, scientific, or educational purposes. The AFS
designation did not provide any information on historical or current
numbers, populations, or rates of decline, and also relies on
NatureServe's (2008) ranking of ``G3/vulnerable'' (discussed in the
previous section of this finding).
The petitioner also cited our classification of the Alabama shad as
a NMFS species of concern as reason to support an ESA listing. As
previously noted, Alabama shad became a NMFS Species of Concern in 2004
when it was reclassified from a Candidate Species. We considered the
entirety of the scientific and commercial information available to us
on the apparent population decline of Alabama shad and the threats that
contributed to the apparent decline when we classified Alabama shad as
a Species of Concern in 2004. By definition, a Species of Concern is
one for which we have some concerns regarding status and threats, but
for which insufficient information was available at the time of
classification to indicate a need to list the species under the ESA.
Our own Species of Concern designation does not include a specific
analysis of extinction risk for Alabama shad, or an analysis of
population size or trends, or other information directly addressing
whether the species faces extinction risk that is cause for concern and
may warrant listing.
In addition to these classifications by national and international
organizations, the petition provided information that Alabama shad is
considered by the states of Mississippi, Alabama, and Georgia to be of
high conservation concern. Mississippi, Alabama, and Georgia did not
provide population abundance estimates, population trends, or
additional information supporting their classifications.
Information currently available in our files provides information
on the abundance and increase of the species in one river system, as
well as insight into the species' resilience. Abundance of Alabama shad
varied greatly between 2005-2007 (~2,000-26,000) as described by Ely et
al. (2008) and was lower than expected based on a comparison with
American shad in the Savannah and Altamaha Rivers (100,000-200,000).
Ingram (2007) compared growth and age class structure of Alabama shad
in the Apalachicola River in 2005-2006 with results from studies
conducted in 1967 and 1972 and indicated that the current population
structure, with fewer age classes and an earlier age at maturity, was
indicative of a declining population. Ingram (2007) also noted that
when a population includes only a few year classes, abundance can
rebound quickly when environmental conditions change (Rutherford et
al., 1992). Fluctuations in abundance of American shad were noted by
Ely et al. (2008) and are well documented by others (Hattala et al.,
1996; Atlantic States Marine Fisheries Commission, 1998; Moring, 2005).
Ely et al. (2008) concluded that commonly observed variations in year-
class strength suggest Alabama shad are resilient and capable of
quickly increasing in number under favorable conditions.
Evaluation of Information on Threats to the Species
The bulk of the information in the petition is an overview of many
of the past and ongoing categories of threats that are believed to have
contributed collectively to the decline of 404 aquatic, riparian, and
wetland species in the Southeast. The majority of the information on
threats in the petition is either general for all 404 species with no
clear linkage to Alabama shad or is specifically linked to other
species or to habitats not occupied by Alabama shad. The petition
states that four of the five causal factors in section 4(a)(1) of the
ESA are adversely affecting the continued existence of Alabama shad:
(A) Present or threatened destruction, modification, or curtailment of
its habitat or range; (B) overutilization for the commercial,
recreational, scientific, or educational purposes; (C) inadequacy of
regulatory mechanisms; and, (D) other natural or manmade factors.
The petition states that Alabama shad have been cut off from many
historical spawning areas by dams and locks, citing Robison and
Buchanan (1988), Etnier (1997), and Mirarchi et al. (2004). Dams can
block access to upriver spawning sites for anadromous species, as well
as alter downstream flow regimes. Dams are present on some rivers that
are occupied by Alabama shad. The petition did not provide substantial
information quantifying the extent to which shad populations have been
reduced by the presence of dams, and we have no such information in our
files. However, there is some information in our files suggesting that
dams may be resulting in reduced populations in some rivers.
Beginning in 2005, a cooperative study supported by multiple local,
academic, state, and Federal conservation partners, including NMFS,
started tracking movements of Alabama shad and other fish species in
the Apalachicola River (USFWS, 2008; Ely et al., 2008; TNC, 2010). The
study also evaluated the feasibility of moving fish upriver of JWLD,
located at the confluence of the Chattahoochee and Flint Rivers, which
presents the first major obstacle on the Apalachicola River to the
upstream migration of Alabama shad to their historical spawning
grounds. The results of this collaborative study showed that the
existing lock at JWLD could be operated to allow fish to move upriver
through the lock where they could access spawning habitat.
Based on these results, the U.S. Army Corps of Engineers (USACE)
began ``conservation locking'' (operating the lock at JWLD to provide
Alabama shad access to upstream habitat) in 2008. The locks are
operated twice a day to correspond with the natural movement patterns
of migrating fish during spawning seasons (February through May) each
year. Since conservation locking began, Alabama shad have been found to
pass upstream of the lock with 45 percent efficiency (Young, 2010) and,
as a result, can access over 150 miles (241.4 km) of historical habitat
and spawning areas in the ACF River System for the first time in more
than 50 years (TNC, 2010). Young (2010) estimated the number of Alabama
shad in the ACF River System at 98,469 in 2010, almost four times
larger than the previous high estimate of 25,935 in 2005 (Ely et al.,
2008). The number of Alabama shad in the Apalachicola River in 2011 was
estimated at 26,193 and was lower than the 2010 value but slightly
higher than the maximum abundance in the 2005-2009 period (Young,
2011). The major difference between the 2010 and 2011 Alabama shad
spawning runs was a lack of age-1 males in 2011 (Young, 2011). Notably,
the 2011 run was dominated by older, larger adult females in excellent
condition, a potential indicator of strong year classes in the future
(Young, 2011). Sammons and Young (2012) provided the most recent report
from the Apalachicola River, estimating the number of Alabama shad at
122,578 in 2012 (the largest since 2005). This
[[Page 57616]]
spawning run was composed of many males presumed to be from the 2010
year class, as well as numerous older, larger adults of both sexes
(presumably recruits from 2009). Sammons and Young (2012) noted that a
year of higher than average flows in 2009 may have contributed to
spawning and recruitment successes in 2010 and 2012. Sammons and Young
(2012) also noted that alosine population sizes commonly fluctuate
widely.
Smith et al. (2011) conducted a population viability analysis (PVA)
of Alabama shad in the ACF River System. A PVA is a modeling tool that
estimates the future size and risk of extinction for populations of
organisms. Smith et al. (2011) estimated returning female abundance in
20 years relative to current numbers and predicted that the ACF
population is increasing and under present conditions could reach
carrying capacity in about 40 years. The PVA indicated significant
declines in abundance only in modeled scenarios with the highest levels
and frequencies of mortality (Smith et al., 2011).
We provided funds to USFWS to complete a genetic study on Alabama
shad in the Apalachicola River, Florida (Moyer, 2012). The study
assessed genetic parameters that may influence its extinction risk.
Moyer (2012) determined that there is no observable genetic structure
in Alabama shad in the Apalachicola River and that the species exhibits
low amounts of genetic diversity.
The conservation locking program in the ACF River System and PVA on
the ACF River Alabama shad demonstrated that the species is resilient
and is responding positively to increased spawning habitat access.
However, this may not be the case in other river systems historically
occupied by Alabama shad. The petition relates the construction of dams
built on the lower Tombigbee and Alabama Rivers in the 1960s to ``steep
declines in shad populations'' in the Mobile River Basin (Barkuloo et
al., 1993; Mettee and O'Neil, 2003; NatureServe, 2008). While there is
no information in the petition or our files quantifying declines in
Alabama shad populations due to dams, Smith et al. (2011) found no
records of Alabama shad in the Tombigbee and Alabama Rivers (the
examples presented in the petition) since 2000. Therefore, the
information presented in the petition and in our files indicates that
Alabama shad populations in some rivers may have declined and causes us
to be concerned that habitat modification may pose a significant risk
to Alabama shad.
In addition to the information on the present and threatened
destruction, modification, or curtailment of habitat or range, the
petitioner provided information regarding the inadequacy of regulatory
mechanisms and other natural or manmade factors that may cause a
significant threat to the Alabama shad. However, because we have
determined that the information available on the present and threatened
destruction, modification, or curtailment of habitat or range may be a
cause for concern for Alabama shad, we do not find a need to conduct a
detailed analysis of the other submitted information here.
Petition Finding
We have determined after reviewing information readily available in
our files that there is substantial information indicating that the
petitioned action may be warranted. Under section 4(b)(3)(A) of the
ESA, an affirmative 90-day finding requires that we promptly commence a
status review of the petitioned species (16 U.S.C. 1533 (b)(3)(A)).
Information Solicited
To ensure that the status review is based on the best available
scientific and commercial data, we are soliciting information on the
status of the Alabama shad throughout its range including: (1)
Historical and current distribution and abundance, including data
addressing presence or absence at a riverine scale; (2) historical and
current population sizes and trends; (3) biological information (life
history, genetics, population connectivity, etc.); (4) landings and
trade data; (5) management, regulatory, and enforcement information;
(6) any current or planned activities that may adversely impact the
species; and (7) ongoing or planned efforts to protect and restore the
species and their habitats. We request that all information be
accompanied by: (1) Supporting documentation such as maps,
bibliographic references, or reprints of pertinent publications; and
(2) the submitter's name, address, and any association, institution, or
business that the person represents. Section 4(b)(1)(A) of the ESA and
NMFS' implementing regulations (50 CFR 424.11(b)) require that a
listing determination be based solely on the best scientific and
commercial data, without consideration of possible economic or other
impacts of the determination. During the 60-day public comment period
we are seeking information related only to the status of the Alabama
shad throughout its range.
Peer Review
On July 1, 1994, NMFS and the U.S. Fish and Wildlife Service
published a series of policies regarding listings under the ESA,
including a policy for peer review of scientific data (59 FR 34270).
The intent of the peer review policy is to ensure listings are based on
the best scientific and commercial data available. The Office of
Management and Budget issued its Final Information Quality Bulletin for
Peer Review on December 16, 2004. The Bulletin went into effect June
16, 2005, and generally requires that all ``influential scientific
information'' and ``highly influential scientific information''
disseminated on or after that date be peer reviewed. Because the
information used to evaluate this petition may be considered
``influential scientific information,'' we solicit the names of
recognized experts in the field that could take part in the peer review
process for this status review (see ADDRESSES). Independent peer
reviewers will be selected from the academic and scientific community,
tribal and other Native American groups, Federal and state agencies,
the private sector, and public interest groups.
References Cited
A complete list of all references is available upon request from
the Protected Resources Division of the NMFS Southeast Regional Office
(see ADDRESSES).
Authority
The authority for this action is the Endangered Species Act of
1973, as amended (16 U.S.C. 1531 et seq.).
Dated: September 13, 2013.
Alan D. Risenhoover,
Director, Office of Sustainable Fisheries, performing the functions and
duties of the Deputy Assistant Administrator for Regulatory Programs,
National Marine Fisheries Service.
[FR Doc. 2013-22869 Filed 9-18-13; 8:45 am]
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