Endangered and Threatened Wildlife and Plants; 90-Day Finding and 12-Month Determination on a Petition To Revise Critical Habitat for Sonora Chub, 57838-57842 [2024-15490]
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DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
50 CFR Part 17
[Docket No. FWS–R2–ES–2022–0012;
FXES1111090FEDR–245–FF09E21000]
Endangered and Threatened Wildlife
and Plants; 90-Day Finding and 12Month Determination on a Petition To
Revise Critical Habitat for Sonora
Chub
Fish and Wildlife Service,
Interior.
ACTION: Notification of a 90-day petition
finding and 12-month determination.
AGENCY:
We, the U.S. Fish and
Wildlife Service (Service), announce our
90-day finding and 12-month
determination on how to proceed in
response to a petition to revise critical
habitat for Sonora chub (Gila ditaenia)
pursuant to the Endangered Species Act
of 1973, as amended (Act). The petition
requests that the Service revise the
existing critical habitat designation in
Arizona by adding California Gulch.
Our 90-day finding is that the petition,
in conjunction with information readily
available in our files, presents
substantial scientific information
indicating that the requested revision
may be warranted. Our 12-month
determination is that we intend to
proceed with processing the petition by
assessing critical habitat during the next
5-year status review for Sonora chub
scheduled for release as soon as fiscal
year 2027, as resources allow.
DATES: The finding and the
determination announced in this
document were made on July 16, 2024.
ADDRESSES: A detailed description of
the basis for this finding and this
determination is available on the
internet at https://www.regulations.gov
at Docket No. FWS–R2–ES–2022–0012.
Information and supporting
documentation used in preparing this
finding and determination is also
available by contacting the person listed
under FOR FURTHER INFORMATION
CONTACT. Please submit any new
information, materials, comments, or
questions concerning this finding to the
contact listed under FOR FURTHER
INFORMATION CONTACT.
FOR FURTHER INFORMATION CONTACT:
Heather Whitlaw, Arizona Ecological
Services Field Office, 9828 North 31st
Ave. C3, Phoenix, AZ 85051–2517;
telephone 602–242–0210. Individuals in
the United States who are deaf,
deafblind, hard of hearing, or have a
speech disability may dial 711 (TTY,
SUMMARY:
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TDD, or TeleBraille) to access
telecommunications relay services.
Individuals outside the United States
should use the relay services offered
within their country to make
international calls to the point-ofcontact in the United States.
SUPPLEMENTARY INFORMATION:
Background
Section 3(5)(A) of the Act defines
critical habitat as (i) the specific areas
within the geographical area occupied
by the species, at the time it is listed,
on which are found those physical or
biological features (I) essential to the
conservation of the species and (II)
which may require special management
considerations or protections; and (ii)
specific areas outside the geographical
area occupied by the species at the time
it is listed, upon a determination by the
Secretary of the Interior (Secretary) that
such areas are essential for the
conservation of the species.
In accordance with section 3(5)(A)(i)
of the Act and regulations at 50 CFR
424.12(b), in determining which areas
we will designate as critical habitat from
within the geographical area occupied
by the species at the time of listing, we
consider the physical or biological
features that are essential to the
conservation of the species and which
may require special management
considerations or protection. Our
implementing regulations at 50 CFR
424.02 define the ‘‘physical or biological
features essential to the conservation of
the species’’ as the features that occur in
specific areas and that are essential to
support the life-history needs of the
species, including, but not limited to,
water characteristics, soil type,
geological features, sites, prey,
vegetation, symbiotic species, or other
features. A feature may be a single
habitat characteristic or a more complex
combination of habitat characteristics.
Features may include habitat
characteristics that support ephemeral
or dynamic habitat conditions. Features
may also be expressed in terms relating
to principles of conservation biology,
such as patch size, distribution
distances, and connectivity. In addition,
our implementing regulations at 50 CFR
424.02 define ‘‘special management
considerations or protection’’ as
methods or procedures useful in
protecting the physical or biological
features essential to the conservation of
listed species.
Section 4(b)(2) of the Act states that
the Secretary shall designate and make
revisions to critical habitat for listed
species on the basis of the best scientific
data available and after taking into
consideration the economic impact,
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national security impact, and any other
relevant impact of specifying any
particular area as critical habitat. The
Secretary may exclude any particular
area from critical habitat if she
determines that the benefits of such
exclusion outweigh the benefits of
specifying such area as part of the
critical habitat, unless she determines
that the failure to designate such area as
critical habitat will result in the
extinction of the species concerned.
Exclusion decisions are governed by the
regulations at 50 CFR 424.19 and the
Policy Regarding Implementation of
Section 4(b)(2) of the Endangered
Species Act (81 FR 7226, February 11,
2016). We also refer to a 2008
Department of the Interior Solicitor’s
opinion entitled ‘‘The Secretary’s
Authority to Exclude Areas from a
Critical Habitat Designation under
Section 4(b)(2) of the Endangered
Species Act’’ (M–37016).
A provision of the Administrative
Procedure Act, codified at 5 U.S.C.
553(e), gives interested persons the right
to petition for the issuance, amendment,
or repeal of a Federal rule. Section
4(b)(3)(D) of the Act requires that we
make a finding on whether a petition to
revise critical habitat for a species
presents substantial scientific
information indicating that the revision
may be warranted. Our regulations at 50
CFR 424.14(i)(1)(i) state that substantial
scientific information refers to credible
scientific information in support of the
petition’s claims such that a reasonable
person conducting an impartial
scientific review would conclude that
the revision proposed in the petition
may be warranted. Conclusions drawn
in the petition without the support of
credible scientific information will not
be considered substantial information.
In determining whether substantial
scientific information exists, we
consider several factors, including
information submitted with, and
referenced in, the petition and all other
information readily available in our
files. Our regulations at 50 CFR
424.14(e)(5) require that, for areas
petitioned to be added to or removed
from designated critical habitat that
were outside the geographical area
occupied by the species at the time it
was listed, the petitioner must present
information indicating why the
petitioned areas are essential (if areas
are being added) or are not essential (if
areas are being removed) for the
conservation of the species.
To the maximum extent practicable,
we are to make this finding within 90
days of our receipt of the petition and
publish our notification of the finding
promptly in the Federal Register. We
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are to base this finding on information
provided in the petition, supporting
information submitted with the petition,
and information otherwise available in
our files. If we find that a petition
presents substantial scientific
information indicating that the revision
may be warranted, we are required to
determine how we intend to proceed
with the requested revision within 12
months after receiving the petition and
promptly publish notification of such
intention in the Federal Register (16
U.S.C. 1533(b)(3)(D)(ii)). We generally
refer to these documents as 90-day
findings and 12-month determinations
or findings.
Our regulations further state that we
will consider whether a petition
presents a complete and balanced
representation of the relevant facts
when making our finding of whether a
petition presents substantial
information that the requested action
may be warranted. Thus, if we find that
a petition presented only information
that would be favorable to the petition
outcome, ignored relevant and readily
available information, and presented a
biased and incomplete representation of
facts, we should consider whether the
petition has met the requirement to
present substantial information.
Previous Federal Actions
Sonora chub, a fish found in
southeastern Arizona, was listed under
the Act as a threatened species with
critical habitat in 1986 (51 FR 16042,
April 30, 1986). Thus, the Sonora chub
appears in the List of Endangered and
Threatened Wildlife at 50 CFR 17.11(h),
and a critical habitat designation for the
Sonora chub in Santa Cruz County,
Arizona, is set forth at 50 CFR 17.95(e).
On August 6, 2021, we received a
petition dated July 30, 2021, from the
Center for Biological Diversity (CBD) to
revise critical habitat for Sonora chub.
The July 30, 2021, petition (hereafter
referred to as ‘‘the 2021 petition’’)
requested that we revise critical habitat
to include the length of California Gulch
from at least approximately 1 mile
above the Tinaja Dam to the
international border, and the lower
extent of Warsaw Canyon. The 2021
petition stated that the Sonora chub is
currently known to occur in California
Gulch, which was not occupied at the
time of listing in 1986, and that it may
be affected by livestock grazing and that
there was an alleged state of
noncompliance with various aspects of
prior biological opinions issued under
section 7 of the Act. The petitioner drew
the conclusion that section 7
consultation alone did not ensure
protection of Sonora chub in California
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Gulch. Additionally, the 2021 petition
alleged that our methodology of
assigning a 25-foot riparian area (along
each side of Sycamore and Peñasco
Creeks) as part of the 1986 critical
habitat could be applied to the same 25foot riparian area along California
Gulch.
As per our regulations at 50 CFR
424.14(e)(5), for areas petitioned to be
added to designated critical habitat that
were outside the geographical area
occupied by the species at the time it
was listed, we assessed whether the
petition presented substantial
information indicating why the
petitioned areas are essential for the
conservation of the species. We
determined that none of the assertions
or opinions presented in the 2021
petition met the definition of substantial
scientific information as that term is
defined at 50 CFR 424.14(i)(1)(i). Based
on our review of the petition, sources
cited in the petition, and other readily
available information, we determined
that the 2021 petition did not provide
substantial scientific information
indicating that California Gulch is
essential for the conservation of Sonora
chub, as required by our regulations (50
CFR 424.14(e)(5)). Therefore, in our 90day finding published in the Federal
Register on August 23, 2022 (87 FR
51635), we determined that the 2021
petition did not provide substantial
information that revising critical habitat
for Sonora chub may be warranted.
Current Petition History
On March 15, 2023, we received a
petition dated March 14, 2023, from
CBD requesting that critical habitat be
revised for Sonora chub. The petition
clearly identified itself as such and
included the requisite identification
information for the petitioner, required
at 50 CFR 424.14(c). Section 4 of the
Act, specifically 16 U.S.C. 1533(b)(3)(D),
allows any interested individual to
petition us to revise a listed species’
critical habitat. As such, we considered
the requested critical habitat revision in
this 90-day finding.
Species Information
Sonora chub is a small fish in the
minnow family. It is usually less than 5
inches long and is dark-colored with
two prominent black lateral bands on
the sides and a dark oval spot at the
base of the tail. Breeding males develop
a red color at the base of the lower fins
and some orange color on the belly
(Miller 1945, p. 108). Sonora chub
mostly inhabits pools within creeks,
sometimes located under cliffs in
erosive creeks (Rinne and Minckley
1991, p. 25).
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At the time of listing, Sonora chub
was known to occur in Sycamore
Canyon in Sycamore Creek proper,
Yanks Spring, and in two of its
tributaries, located in Santa Cruz
County, Arizona. Critical habitat for
Sonora chub is designated in Sycamore
Creek, starting from and including
Yank’s Spring, downstream
approximately 5 miles to the
international border with Mexico, plus
the lower 1.25 miles of Peñasco Creek,
and the lower 0.25 miles of an unnamed
stream that enters Sycamore Creek from
the west in the NW 1⁄4 of Section 23,
T.23S., R.11E. in Santa Cruz County.
Critical habitat includes a 25-foot-wide
riparian area along each side of
Sycamore and Peñasco Creeks. No
riparian zone was designated around
Yank’s Spring because it was
impounded in a concrete tank. No
riparian zone was designated for the
unnamed stream because this reach
consisted of bedrock pools that were
unaffected by the riparian zone. Since
its listing, the species was discovered in
1995 in California Gulch in Santa Cruz
County and its tributary streams. The
species’ occurrence there is considered
to be a natural population, but the
species was not known to occur here at
the time of listing in 1986 (AGFD 1995,
pp. 1–2).
Evaluation of Information for the 90Day Finding
Section 4(b)(2) of the Act requires us
to designate and revise critical habitat
for listed species on the basis of the best
scientific data available. Section
4(b)(3)(D)(i) requires us to make a
finding as to whether the petition
presents substantial scientific
information indicating that the revision
may be warranted. For the purposes of
findings on petitions to revise critical
habitat, we apply the definition of
‘‘substantial scientific information’’ set
forth at 50 CFR 424.14(i)(1)(i). In making
this finding, we relied on information
provided by the petitioners, sources
cited by the petitioners, and information
readily available in the Service’s files.
Since the request was for unoccupied
critical habitat, the standards we
applied to our analysis are set forth in
50 CFR 424.14(e)(5), meaning that the
petition must present substantial
scientific information that the requested
areas are essential for the species’
conservation.
90-Day Finding
In accordance with 50 CFR
424.14(h)(1)(iii), the ‘‘substantial
scientific or commercial information’’
standard must be applied in light of any
prior reviews or findings the Service has
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made on the listing status of the species
that is the subject of the petition. As
discussed above, in our 90-day finding
on the 2021 petition, we concluded that
none of the assertions or opinions
presented in the 2021 petition met the
definition of substantial scientific
information as that term is defined at 50
CFR 424.14(i)(1)(i). However, in
reviewing the current information
provided by the petitioners, we have
determined that the March 15, 2023,
CBD petition (hereafter referred to as
‘‘the 2023 petition’’) does present
substantial information indicating that
California Gulch is essential for the
conservation of the Sonora chub. The
petition did not identify California
Gulch as occupied by Sonora chub at
the time of listing, citing that this area
was only found to be occupied by the
species in 1995 (Service 2013, p.13).
Therefore, we apply our regulations at
50 CFR 424.14(e)(5) that require that, for
areas petitioned to be added to or
removed from designated critical habitat
that were outside the geographical area
occupied by the species at the time it
was listed, the petitioner must present
information indicating why the
petitioned areas are essential for the
conservation of the species.
The content and emphasis of the 2021
petition differed substantively from the
2023 petition. The 2021 petition
requested designating critical habitat in
California Gulch based primarily on the
threats of livestock grazing and border
activities on Sonora chub and the need
to add an additional locus for
interagency consultation under section
7 of the Act to address those threats.
The 2023 petition also discusses the
effects of livestock grazing and border
activities as threats (CBD 2023, pp. 12–
20). However, in the 2023 petition, these
impacts were discussed regarding the
assertion that increased redundancy of
the Sonora chub by designating critical
habitat in California Gulch would in
turn help minimize the effects of these
impacts on the species. The 2023
petition’s focus on redundancy,
resiliency, and representation represents
a different approach based on principles
of conservation biology to support the
petitioner’s contention that California
Gulch is essential for the conservation
of Sonora chub. The 2023 petition’s
focus on the substantial information
available to support the principles of
conservation biology required to
support a finding that a critical habitat
designation is essential for the
conservation of the species was a
marked change from the 2021 petition.
This change in the information
presented to support the petition led to
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our conclusion that the latter petition
provided substantial information
indicating that California Gulch is
essential for the conservation of Sonora
chub as set forth in our regulations at 50
CFR 424.14(e)(5).
The petition requests that the Service
revise the existing critical habitat
designation by adding the stretch of
California Gulch downstream from the
small dam above the tinaja (a plunge
pool with a bedrock substrate) to the
international border with Mexico, along
with a 25-foot riparian buffer along each
side of the stream channel. The
petitioner first states that designating
critical habitat in California Gulch is
essential to the conservation of the
Sonora chub as defined in the Service’s
recovery plan (CBD 2023, p. 34). The
petitioner reiterates the recovery
objectives from the Sonora chub
recovery plan and specifically refers to
recovery objective I ‘‘Protect Remaining
Populations of Sonora chub’’ and its
subtask ‘‘Recognize Critical Habitat’’
(Service 1992, pp. 21–39), correctly
noting that recovery criteria have not
been developed (CBD 2023, p. 34;
Service 1992, pp. 22–23). The petitioner
correctly notes that conservation
equates to recovery in that the former is
defined as using all methods and
procedures that are necessary to bring
any endangered or threatened species to
the point at which the measures
provided pursuant to the Act are no
longer necessary, i.e., the species is
recovered in accordance with 50 CFR
402.02. We agree that the recovery
plan’s stated intent is to guide
management actions to conserve Sonora
chub in its natural habitat (Service 1992,
p. 21) and that conservation equates to
recovery. However, recovery plan
objective I(A) does not, without context,
support the assertion that California
Gulch, now known to be within Sonora
chub’s natural habitat, is essential to the
species’ conservation.
The petition then demonstrates that
protecting Sonora chub habitat in
California Gulch may also be essential
to the conservation of the species as it
allows for increased redundancy,
resiliency, and representation and,
therefore, viability. The petition quotes
the Service’s critical habitat
determination for the northern spotted
owl (57 FR 1796) and includes that ‘‘a
species can be said to be recovered
when its continued viability is highly
certain’’ (CBD 2023, p. 34). The petition
provides the Service’s definitions of
redundancy, resiliency, and
representation as applied in the Species
Status Assessment Report for the
Arkansas River Shiner (Notropis girardi)
and Peppered Chub (Macrhybopsis
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tetranema) (Service 2018, entire). The
Arkansas River shiner and peppered
chub are cyprinid fishes (minnow
family), as is the Sonora chub, and all
three species occur in lotic (riverine)
ecosystems. The concepts contained in
the species status assessment report for
the Arkansas River shiner and peppered
chub are therefore generally
transferrable to Sonora chub.
Sycamore Canyon and California
Gulch support the only two wild
populations of Sonora chub in the
United States (Service 2013, p. 18).
Sonora chub was most recently detected
in Sycamore Canyon on site visits in
2019 and 2022, but fish were absent
from dry reaches of Peñasco Creek and
an unnamed tributary (Service 2022, p.
4). Sonora chub exists on a permanent
basis in California Gulch in the United
States, and during periods of adequate
flow move out from two core areas in
that stream to occupy the intervening
channel (Stefferud and Stefferud 2007,
p. 18). Sonora chub was not detected by
the Arizona Game and Fish Department
in a single sampling visit to California
Gulch in June of 2022, although the
pools sampled may have only recently
become inundated by rains (Service
2022, p. 4). Sonora chub is temporally
absent from much of California Gulch
during times of reduced runoff, but it is
likely the species repopulates the stream
from residually occupied sites in the
United States (Stefferud and Stefferud
2007, p. 18) and/or via upstream
movements from occupied reaches in
Mexico when hydrologic conditions
become favorable (Service 2013, p. 27).
The confluence of Sycamore Canyon
and California Gulch is located south of
the international border with Mexico.
Recent detection data for Sonora chub
in Mexico indicates the species is still
present in some locations there. Sonora
chub was collected from the Rio
Cocospera at Rancho El Aribabi in
Sonora in 2015 (Service 2022, p. 4).
Sonora chub was again detected in the
Rio Cocospera in 2017, in two Rio
Cocospera locations in 2022, and in the
Rio Bambuto in 2022 (Service 2022, p.
4).
Regardless of the species’ status in
Mexico, the redundancy of Sonora chub
in the United States is low. The petition
therefore presents substantial
information that California Gulch, since
it is most likely repopulated by the
species when hydrologic conditions
allow, may be essential to ensuring the
redundancy of Sonora chub and that the
stream therefore contributes to the
conservation of the species.
The petition cites severe fire or
misplaced fire-retardant drops as
examples of catastrophic events that
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could severely impact or even remove
one of the two Sonora chub populations
in the United States, or significantly
affect the species’ genetic diversity,
limiting the ability of the Sonora chub
to recover (Service 2013, p. 18). Sonora
chub is a desert fish adapted to the
fluctuations of a desert environment;
after drought conditions, it has been
known to rapidly expand and recolonize
California Gulch and newly re-wetted
reaches. If habitat conditions along
waterways can be maintained, then this
ability to respond to favorable water
conditions is encouraging for the
population to avoid the danger of
extinction (Service 2013, p. 27). The
petition asserts that designating critical
habitat is necessary to ensure that the
California Gulch population is resilient
enough for the species to avoid
extinction should the Sycamore Canyon
population be extirpated by a
catastrophic event, back-to-back
stochastic events, or the combined effect
of multiple threats, such as livestock
grazing and border infrastructure.
Resiliency describes a population’s
ability to withstand either periodic or
stochastic disturbance events that do
not rise to the level of catastrophic.
California Gulch can serve as a source
population for downstream reaches in
Mexico as well as Sycamore Canyon if
the latter were to experience a periodic
or stochastic event, not necessarily
having to rise to the level of
catastrophic. The petition therefore
presents substantial information
indicating that California Gulch may be
essential to ensuring the resiliency of
Sonora chub and, thus, contributes to
the conservation of the species.
Representation describes a species’
ability to adapt to changing
environmental conditions over time.
Representation can be measured based
on the range of adaptive diversity
within and among populations and the
ecological diversity of populations
across the species’ range. Representation
or genetic diversity within Sonora chub
is difficult to determine as the Sonora
chub’s genetic variability in the wild
remains unknown (Service 2019, p. 10)
and information on morphological
variability appears to be limited.
According to the Arizona Game and
Fish Department (2021, p. 1), Sonora
chub may achieve lengths of up to 7.9
inches (20 centimeters) in the United
States whereas Sonora chub in Mexico
may grow up to 10 inches (25
centimeters) long. A high degree of
genetic differentiation between
populations in California Gulch and
Sycamore Canyon is unlikely given that
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57841
at least occasional interactions and thus,
gene flow, may occur between the two.
However, additional genetic diversity
may exist due to variation in the
habitats or niches occupied in the two
locations, enhancing the species’ ability
to adapt to changing environmental
conditions. Sycamore Canyon is an
intermittent stream with a perennialinterrupted flow that comprises isolated
pools or sometimes continuous flow in
the approximately 6 miles upstream of
the international border (Stefferud and
Stefferud 2007, p. 44). Sycamore
Canyon is a mix of Madrean evergreen
oak woodland and Sonoran Desertdominated habitat, and there are
significant reaches of high-elevation
riparian vegetation, with species
including Fremont cottonwood, willow,
velvet mesquite and scattered Arizona
sycamore (Audubon et al. 2020, pp. 1–
2). California Gulch is a small
intermittent to ephemeral stream with
perennial water at the tinaja, the
livestock exclosure at the international
border with Mexico, as well as artificial
ponds in the nearby town of Ruby,
Arizona (Stefferud and Stefferud 2007,
p. 18). California Gulch is unique with
quality thornscrub habitat and a dense
shrub layer on its steep sides (Audubon
et al. 2020, p. 2). The differing habitat
conditions means it is possible for there
to exist a small degree of intraspecific
diversity via a temporal cline between
Sonora chub simultaneously occupying
Sycamore Canyon and California Gulch
during times when hydrologic
conditions temporarily prohibit the
exchange of individuals (and gene flow)
between the streams and other waters in
the Rio de la Concepción (Rio
Magdalena) watershed in Mexico. The
petition therefore presents substantial
information that California Gulch may
be essential to ensuring Sonora chub
representation is maintained such that it
contributes to the conservation of the
species.
In summary, the petition presents
several arguments asserting that revision
of critical habitat for Sonora chub may
be essential for the conservation of the
species. We find that information
presented in the petition regarding the
importance of California Gulch to
ensure the redundancy, resiliency, and
representation of Sonora chub, provides
information that this area is essential for
the conservation of the species as
required by our regulations at 50 CFR
424.14(e)(5).
12-Month Determination
Section 4(b)(3)(D)(ii) of the Act states
that if we find that a petition presents
substantial information indicating that a
revision to critical habitat may be
E:\FR\FM\16JYP1.SGM
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Federal Register / Vol. 89, No. 136 / Tuesday, July 16, 2024 / Proposed Rules
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warranted, then within 12 months of
receiving the petition we are to indicate
how we intend to proceed with the
requested revision and promptly
publish a notice of our intention in the
Federal Register. Pursuant to the
provisions of the Act regarding revision
of critical habitat and petitions for
revision, we hereby provide notification
as to how we intend to proceed with the
requested revision to the critical habitat
for Sonora chub.
We intend that any revisions to the
critical habitat designated for Sonora
chub be as accurate and comprehensive
as possible. Therefore, we intend to
assess potential revisions to Sonora
chub critical habitat following the
completion of the next 5-year status
review for the species scheduled for
release as soon as fiscal year 2027, as
resources allow. Once the 5-year review
is complete, a rulemaking process may
be initiated after revisions to the
VerDate Sep<11>2014
16:21 Jul 15, 2024
Jkt 262001
species’ critical habitat have been
assessed and if they are determined to
be appropriate.
The currently designated critical
habitat in Arizona, as well as areas that
support the species but are outside of
the current critical habitat designation,
will continue to be subject to
conservation actions implemented
under section 7(a)(1) of the Act. Actions
affecting Sonora chub, or its designated
critical habitat, are subject to the
regulatory protections afforded by
section 7(a)(2) of the Act, which
requires Federal agencies, including the
Service, to ensure that actions they
fund, authorize, or carry out are not
likely to jeopardize the continued
existence of any listed species or result
in the destruction or adverse
modification of critical habitat.
PO 00000
References Cited
A complete list of references cited in
this document is available on the
internet at https://www.regulations.gov
at Docket No. FWS–R2–ES–2022–0012
and upon request from the Arizona
Ecological Services Field Office (see FOR
FURTHER INFORMATION CONTACT).
Authors
The primary authors of this document
are the staff members of the Arizona
Ecological Services Field Office.
Authority
The authority for this 90-day finding
and 12-month determination is the
Endangered Species Act of 1973, as
amended (16 U.S.C. 1531 et seq.).
Martha Williams,
Director, U.S. Fish and Wildlife Service.
[FR Doc. 2024–15490 Filed 7–15–24; 8:45 am]
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Agencies
[Federal Register Volume 89, Number 136 (Tuesday, July 16, 2024)]
[Proposed Rules]
[Pages 57838-57842]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2024-15490]
=======================================================================
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DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
50 CFR Part 17
[Docket No. FWS-R2-ES-2022-0012; FXES1111090FEDR-245-FF09E21000]
Endangered and Threatened Wildlife and Plants; 90-Day Finding and
12-Month Determination on a Petition To Revise Critical Habitat for
Sonora Chub
AGENCY: Fish and Wildlife Service, Interior.
ACTION: Notification of a 90-day petition finding and 12-month
determination.
-----------------------------------------------------------------------
SUMMARY: We, the U.S. Fish and Wildlife Service (Service), announce our
90-day finding and 12-month determination on how to proceed in response
to a petition to revise critical habitat for Sonora chub (Gila
ditaenia) pursuant to the Endangered Species Act of 1973, as amended
(Act). The petition requests that the Service revise the existing
critical habitat designation in Arizona by adding California Gulch. Our
90-day finding is that the petition, in conjunction with information
readily available in our files, presents substantial scientific
information indicating that the requested revision may be warranted.
Our 12-month determination is that we intend to proceed with processing
the petition by assessing critical habitat during the next 5-year
status review for Sonora chub scheduled for release as soon as fiscal
year 2027, as resources allow.
DATES: The finding and the determination announced in this document
were made on July 16, 2024.
ADDRESSES: A detailed description of the basis for this finding and
this determination is available on the internet at https://www.regulations.gov at Docket No. FWS-R2-ES-2022-0012. Information and
supporting documentation used in preparing this finding and
determination is also available by contacting the person listed under
FOR FURTHER INFORMATION CONTACT. Please submit any new information,
materials, comments, or questions concerning this finding to the
contact listed under FOR FURTHER INFORMATION CONTACT.
FOR FURTHER INFORMATION CONTACT: Heather Whitlaw, Arizona Ecological
Services Field Office, 9828 North 31st Ave. C3, Phoenix, AZ 85051-2517;
telephone 602-242-0210. Individuals in the United States who are deaf,
deafblind, hard of hearing, or have a speech disability may dial 711
(TTY, TDD, or TeleBraille) to access telecommunications relay services.
Individuals outside the United States should use the relay services
offered within their country to make international calls to the point-
of-contact in the United States.
SUPPLEMENTARY INFORMATION:
Background
Section 3(5)(A) of the Act defines critical habitat as (i) the
specific areas within the geographical area occupied by the species, at
the time it is listed, on which are found those physical or biological
features (I) essential to the conservation of the species and (II)
which may require special management considerations or protections; and
(ii) specific areas outside the geographical area occupied by the
species at the time it is listed, upon a determination by the Secretary
of the Interior (Secretary) that such areas are essential for the
conservation of the species.
In accordance with section 3(5)(A)(i) of the Act and regulations at
50 CFR 424.12(b), in determining which areas we will designate as
critical habitat from within the geographical area occupied by the
species at the time of listing, we consider the physical or biological
features that are essential to the conservation of the species and
which may require special management considerations or protection. Our
implementing regulations at 50 CFR 424.02 define the ``physical or
biological features essential to the conservation of the species'' as
the features that occur in specific areas and that are essential to
support the life-history needs of the species, including, but not
limited to, water characteristics, soil type, geological features,
sites, prey, vegetation, symbiotic species, or other features. A
feature may be a single habitat characteristic or a more complex
combination of habitat characteristics. Features may include habitat
characteristics that support ephemeral or dynamic habitat conditions.
Features may also be expressed in terms relating to principles of
conservation biology, such as patch size, distribution distances, and
connectivity. In addition, our implementing regulations at 50 CFR
424.02 define ``special management considerations or protection'' as
methods or procedures useful in protecting the physical or biological
features essential to the conservation of listed species.
Section 4(b)(2) of the Act states that the Secretary shall
designate and make revisions to critical habitat for listed species on
the basis of the best scientific data available and after taking into
consideration the economic impact,
[[Page 57839]]
national security impact, and any other relevant impact of specifying
any particular area as critical habitat. The Secretary may exclude any
particular area from critical habitat if she determines that the
benefits of such exclusion outweigh the benefits of specifying such
area as part of the critical habitat, unless she determines that the
failure to designate such area as critical habitat will result in the
extinction of the species concerned. Exclusion decisions are governed
by the regulations at 50 CFR 424.19 and the Policy Regarding
Implementation of Section 4(b)(2) of the Endangered Species Act (81 FR
7226, February 11, 2016). We also refer to a 2008 Department of the
Interior Solicitor's opinion entitled ``The Secretary's Authority to
Exclude Areas from a Critical Habitat Designation under Section 4(b)(2)
of the Endangered Species Act'' (M-37016).
A provision of the Administrative Procedure Act, codified at 5
U.S.C. 553(e), gives interested persons the right to petition for the
issuance, amendment, or repeal of a Federal rule. Section 4(b)(3)(D) of
the Act requires that we make a finding on whether a petition to revise
critical habitat for a species presents substantial scientific
information indicating that the revision may be warranted. Our
regulations at 50 CFR 424.14(i)(1)(i) state that substantial scientific
information refers to credible scientific information in support of the
petition's claims such that a reasonable person conducting an impartial
scientific review would conclude that the revision proposed in the
petition may be warranted. Conclusions drawn in the petition without
the support of credible scientific information will not be considered
substantial information.
In determining whether substantial scientific information exists,
we consider several factors, including information submitted with, and
referenced in, the petition and all other information readily available
in our files. Our regulations at 50 CFR 424.14(e)(5) require that, for
areas petitioned to be added to or removed from designated critical
habitat that were outside the geographical area occupied by the species
at the time it was listed, the petitioner must present information
indicating why the petitioned areas are essential (if areas are being
added) or are not essential (if areas are being removed) for the
conservation of the species.
To the maximum extent practicable, we are to make this finding
within 90 days of our receipt of the petition and publish our
notification of the finding promptly in the Federal Register. 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. If we find that a petition presents substantial
scientific information indicating that the revision may be warranted,
we are required to determine how we intend to proceed with the
requested revision within 12 months after receiving the petition and
promptly publish notification of such intention in the Federal Register
(16 U.S.C. 1533(b)(3)(D)(ii)). We generally refer to these documents as
90-day findings and 12-month determinations or findings.
Our regulations further state that we will consider whether a
petition presents a complete and balanced representation of the
relevant facts when making our finding of whether a petition presents
substantial information that the requested action may be warranted.
Thus, if we find that a petition presented only information that would
be favorable to the petition outcome, ignored relevant and readily
available information, and presented a biased and incomplete
representation of facts, we should consider whether the petition has
met the requirement to present substantial information.
Previous Federal Actions
Sonora chub, a fish found in southeastern Arizona, was listed under
the Act as a threatened species with critical habitat in 1986 (51 FR
16042, April 30, 1986). Thus, the Sonora chub appears in the List of
Endangered and Threatened Wildlife at 50 CFR 17.11(h), and a critical
habitat designation for the Sonora chub in Santa Cruz County, Arizona,
is set forth at 50 CFR 17.95(e).
On August 6, 2021, we received a petition dated July 30, 2021, from
the Center for Biological Diversity (CBD) to revise critical habitat
for Sonora chub. The July 30, 2021, petition (hereafter referred to as
``the 2021 petition'') requested that we revise critical habitat to
include the length of California Gulch from at least approximately 1
mile above the Tinaja Dam to the international border, and the lower
extent of Warsaw Canyon. The 2021 petition stated that the Sonora chub
is currently known to occur in California Gulch, which was not occupied
at the time of listing in 1986, and that it may be affected by
livestock grazing and that there was an alleged state of noncompliance
with various aspects of prior biological opinions issued under section
7 of the Act. The petitioner drew the conclusion that section 7
consultation alone did not ensure protection of Sonora chub in
California Gulch. Additionally, the 2021 petition alleged that our
methodology of assigning a 25-foot riparian area (along each side of
Sycamore and Pe[ntilde]asco Creeks) as part of the 1986 critical
habitat could be applied to the same 25-foot riparian area along
California Gulch.
As per our regulations at 50 CFR 424.14(e)(5), for areas petitioned
to be added to designated critical habitat that were outside the
geographical area occupied by the species at the time it was listed, we
assessed whether the petition presented substantial information
indicating why the petitioned areas are essential for the conservation
of the species. We determined that none of the assertions or opinions
presented in the 2021 petition met the definition of substantial
scientific information as that term is defined at 50 CFR
424.14(i)(1)(i). Based on our review of the petition, sources cited in
the petition, and other readily available information, we determined
that the 2021 petition did not provide substantial scientific
information indicating that California Gulch is essential for the
conservation of Sonora chub, as required by our regulations (50 CFR
424.14(e)(5)). Therefore, in our 90-day finding published in the
Federal Register on August 23, 2022 (87 FR 51635), we determined that
the 2021 petition did not provide substantial information that revising
critical habitat for Sonora chub may be warranted.
Current Petition History
On March 15, 2023, we received a petition dated March 14, 2023,
from CBD requesting that critical habitat be revised for Sonora chub.
The petition clearly identified itself as such and included the
requisite identification information for the petitioner, required at 50
CFR 424.14(c). Section 4 of the Act, specifically 16 U.S.C.
1533(b)(3)(D), allows any interested individual to petition us to
revise a listed species' critical habitat. As such, we considered the
requested critical habitat revision in this 90-day finding.
Species Information
Sonora chub is a small fish in the minnow family. It is usually
less than 5 inches long and is dark-colored with two prominent black
lateral bands on the sides and a dark oval spot at the base of the
tail. Breeding males develop a red color at the base of the lower fins
and some orange color on the belly (Miller 1945, p. 108). Sonora chub
mostly inhabits pools within creeks, sometimes located under cliffs in
erosive creeks (Rinne and Minckley 1991, p. 25).
[[Page 57840]]
At the time of listing, Sonora chub was known to occur in Sycamore
Canyon in Sycamore Creek proper, Yanks Spring, and in two of its
tributaries, located in Santa Cruz County, Arizona. Critical habitat
for Sonora chub is designated in Sycamore Creek, starting from and
including Yank's Spring, downstream approximately 5 miles to the
international border with Mexico, plus the lower 1.25 miles of
Pe[ntilde]asco Creek, and the lower 0.25 miles of an unnamed stream
that enters Sycamore Creek from the west in the NW \1/4\ of Section 23,
T.23S., R.11E. in Santa Cruz County. Critical habitat includes a 25-
foot-wide riparian area along each side of Sycamore and Pe[ntilde]asco
Creeks. No riparian zone was designated around Yank's Spring because it
was impounded in a concrete tank. No riparian zone was designated for
the unnamed stream because this reach consisted of bedrock pools that
were unaffected by the riparian zone. Since its listing, the species
was discovered in 1995 in California Gulch in Santa Cruz County and its
tributary streams. The species' occurrence there is considered to be a
natural population, but the species was not known to occur here at the
time of listing in 1986 (AGFD 1995, pp. 1-2).
Evaluation of Information for the 90-Day Finding
Section 4(b)(2) of the Act requires us to designate and revise
critical habitat for listed species on the basis of the best scientific
data available. Section 4(b)(3)(D)(i) requires us to make a finding as
to whether the petition presents substantial scientific information
indicating that the revision may be warranted. For the purposes of
findings on petitions to revise critical habitat, we apply the
definition of ``substantial scientific information'' set forth at 50
CFR 424.14(i)(1)(i). In making this finding, we relied on information
provided by the petitioners, sources cited by the petitioners, and
information readily available in the Service's files. Since the request
was for unoccupied critical habitat, the standards we applied to our
analysis are set forth in 50 CFR 424.14(e)(5), meaning that the
petition must present substantial scientific information that the
requested areas are essential for the species' conservation.
90-Day Finding
In accordance with 50 CFR 424.14(h)(1)(iii), the ``substantial
scientific or commercial information'' standard must be applied in
light of any prior reviews or findings the Service has made on the
listing status of the species that is the subject of the petition. As
discussed above, in our 90-day finding on the 2021 petition, we
concluded that none of the assertions or opinions presented in the 2021
petition met the definition of substantial scientific information as
that term is defined at 50 CFR 424.14(i)(1)(i). However, in reviewing
the current information provided by the petitioners, we have determined
that the March 15, 2023, CBD petition (hereafter referred to as ``the
2023 petition'') does present substantial information indicating that
California Gulch is essential for the conservation of the Sonora chub.
The petition did not identify California Gulch as occupied by Sonora
chub at the time of listing, citing that this area was only found to be
occupied by the species in 1995 (Service 2013, p.13). Therefore, we
apply our regulations at 50 CFR 424.14(e)(5) that require that, for
areas petitioned to be added to or removed from designated critical
habitat that were outside the geographical area occupied by the species
at the time it was listed, the petitioner must present information
indicating why the petitioned areas are essential for the conservation
of the species.
The content and emphasis of the 2021 petition differed
substantively from the 2023 petition. The 2021 petition requested
designating critical habitat in California Gulch based primarily on the
threats of livestock grazing and border activities on Sonora chub and
the need to add an additional locus for interagency consultation under
section 7 of the Act to address those threats. The 2023 petition also
discusses the effects of livestock grazing and border activities as
threats (CBD 2023, pp. 12-20). However, in the 2023 petition, these
impacts were discussed regarding the assertion that increased
redundancy of the Sonora chub by designating critical habitat in
California Gulch would in turn help minimize the effects of these
impacts on the species. The 2023 petition's focus on redundancy,
resiliency, and representation represents a different approach based on
principles of conservation biology to support the petitioner's
contention that California Gulch is essential for the conservation of
Sonora chub. The 2023 petition's focus on the substantial information
available to support the principles of conservation biology required to
support a finding that a critical habitat designation is essential for
the conservation of the species was a marked change from the 2021
petition. This change in the information presented to support the
petition led to our conclusion that the latter petition provided
substantial information indicating that California Gulch is essential
for the conservation of Sonora chub as set forth in our regulations at
50 CFR 424.14(e)(5).
The petition requests that the Service revise the existing critical
habitat designation by adding the stretch of California Gulch
downstream from the small dam above the tinaja (a plunge pool with a
bedrock substrate) to the international border with Mexico, along with
a 25-foot riparian buffer along each side of the stream channel. The
petitioner first states that designating critical habitat in California
Gulch is essential to the conservation of the Sonora chub as defined in
the Service's recovery plan (CBD 2023, p. 34). The petitioner
reiterates the recovery objectives from the Sonora chub recovery plan
and specifically refers to recovery objective I ``Protect Remaining
Populations of Sonora chub'' and its subtask ``Recognize Critical
Habitat'' (Service 1992, pp. 21-39), correctly noting that recovery
criteria have not been developed (CBD 2023, p. 34; Service 1992, pp.
22-23). The petitioner correctly notes that conservation equates to
recovery in that the former is defined as using all methods and
procedures that are necessary to bring any endangered or threatened
species to the point at which the measures provided pursuant to the Act
are no longer necessary, i.e., the species is recovered in accordance
with 50 CFR 402.02. We agree that the recovery plan's stated intent is
to guide management actions to conserve Sonora chub in its natural
habitat (Service 1992, p. 21) and that conservation equates to
recovery. However, recovery plan objective I(A) does not, without
context, support the assertion that California Gulch, now known to be
within Sonora chub's natural habitat, is essential to the species'
conservation.
The petition then demonstrates that protecting Sonora chub habitat
in California Gulch may also be essential to the conservation of the
species as it allows for increased redundancy, resiliency, and
representation and, therefore, viability. The petition quotes the
Service's critical habitat determination for the northern spotted owl
(57 FR 1796) and includes that ``a species can be said to be recovered
when its continued viability is highly certain'' (CBD 2023, p. 34). The
petition provides the Service's definitions of redundancy, resiliency,
and representation as applied in the Species Status Assessment Report
for the Arkansas River Shiner (Notropis girardi) and Peppered Chub
(Macrhybopsis
[[Page 57841]]
tetranema) (Service 2018, entire). The Arkansas River shiner and
peppered chub are cyprinid fishes (minnow family), as is the Sonora
chub, and all three species occur in lotic (riverine) ecosystems. The
concepts contained in the species status assessment report for the
Arkansas River shiner and peppered chub are therefore generally
transferrable to Sonora chub.
Sycamore Canyon and California Gulch support the only two wild
populations of Sonora chub in the United States (Service 2013, p. 18).
Sonora chub was most recently detected in Sycamore Canyon on site
visits in 2019 and 2022, but fish were absent from dry reaches of
Pe[ntilde]asco Creek and an unnamed tributary (Service 2022, p. 4).
Sonora chub exists on a permanent basis in California Gulch in the
United States, and during periods of adequate flow move out from two
core areas in that stream to occupy the intervening channel (Stefferud
and Stefferud 2007, p. 18). Sonora chub was not detected by the Arizona
Game and Fish Department in a single sampling visit to California Gulch
in June of 2022, although the pools sampled may have only recently
become inundated by rains (Service 2022, p. 4). Sonora chub is
temporally absent from much of California Gulch during times of reduced
runoff, but it is likely the species repopulates the stream from
residually occupied sites in the United States (Stefferud and Stefferud
2007, p. 18) and/or via upstream movements from occupied reaches in
Mexico when hydrologic conditions become favorable (Service 2013, p.
27).
The confluence of Sycamore Canyon and California Gulch is located
south of the international border with Mexico. Recent detection data
for Sonora chub in Mexico indicates the species is still present in
some locations there. Sonora chub was collected from the Rio Cocospera
at Rancho El Aribabi in Sonora in 2015 (Service 2022, p. 4). Sonora
chub was again detected in the Rio Cocospera in 2017, in two Rio
Cocospera locations in 2022, and in the Rio Bambuto in 2022 (Service
2022, p. 4).
Regardless of the species' status in Mexico, the redundancy of
Sonora chub in the United States is low. The petition therefore
presents substantial information that California Gulch, since it is
most likely repopulated by the species when hydrologic conditions
allow, may be essential to ensuring the redundancy of Sonora chub and
that the stream therefore contributes to the conservation of the
species.
The petition cites severe fire or misplaced fire-retardant drops as
examples of catastrophic events that could severely impact or even
remove one of the two Sonora chub populations in the United States, or
significantly affect the species' genetic diversity, limiting the
ability of the Sonora chub to recover (Service 2013, p. 18). Sonora
chub is a desert fish adapted to the fluctuations of a desert
environment; after drought conditions, it has been known to rapidly
expand and recolonize California Gulch and newly re-wetted reaches. If
habitat conditions along waterways can be maintained, then this ability
to respond to favorable water conditions is encouraging for the
population to avoid the danger of extinction (Service 2013, p. 27). The
petition asserts that designating critical habitat is necessary to
ensure that the California Gulch population is resilient enough for the
species to avoid extinction should the Sycamore Canyon population be
extirpated by a catastrophic event, back-to-back stochastic events, or
the combined effect of multiple threats, such as livestock grazing and
border infrastructure. Resiliency describes a population's ability to
withstand either periodic or stochastic disturbance events that do not
rise to the level of catastrophic. California Gulch can serve as a
source population for downstream reaches in Mexico as well as Sycamore
Canyon if the latter were to experience a periodic or stochastic event,
not necessarily having to rise to the level of catastrophic. The
petition therefore presents substantial information indicating that
California Gulch may be essential to ensuring the resiliency of Sonora
chub and, thus, contributes to the conservation of the species.
Representation describes a species' ability to adapt to changing
environmental conditions over time. Representation can be measured
based on the range of adaptive diversity within and among populations
and the ecological diversity of populations across the species' range.
Representation or genetic diversity within Sonora chub is difficult to
determine as the Sonora chub's genetic variability in the wild remains
unknown (Service 2019, p. 10) and information on morphological
variability appears to be limited. According to the Arizona Game and
Fish Department (2021, p. 1), Sonora chub may achieve lengths of up to
7.9 inches (20 centimeters) in the United States whereas Sonora chub in
Mexico may grow up to 10 inches (25 centimeters) long. A high degree of
genetic differentiation between populations in California Gulch and
Sycamore Canyon is unlikely given that at least occasional interactions
and thus, gene flow, may occur between the two.
However, additional genetic diversity may exist due to variation in
the habitats or niches occupied in the two locations, enhancing the
species' ability to adapt to changing environmental conditions.
Sycamore Canyon is an intermittent stream with a perennial- interrupted
flow that comprises isolated pools or sometimes continuous flow in the
approximately 6 miles upstream of the international border (Stefferud
and Stefferud 2007, p. 44). Sycamore Canyon is a mix of Madrean
evergreen oak woodland and Sonoran Desert-dominated habitat, and there
are significant reaches of high-elevation riparian vegetation, with
species including Fremont cottonwood, willow, velvet mesquite and
scattered Arizona sycamore (Audubon et al. 2020, pp. 1-2). California
Gulch is a small intermittent to ephemeral stream with perennial water
at the tinaja, the livestock exclosure at the international border with
Mexico, as well as artificial ponds in the nearby town of Ruby, Arizona
(Stefferud and Stefferud 2007, p. 18). California Gulch is unique with
quality thornscrub habitat and a dense shrub layer on its steep sides
(Audubon et al. 2020, p. 2). The differing habitat conditions means it
is possible for there to exist a small degree of intraspecific
diversity via a temporal cline between Sonora chub simultaneously
occupying Sycamore Canyon and California Gulch during times when
hydrologic conditions temporarily prohibit the exchange of individuals
(and gene flow) between the streams and other waters in the Rio de la
Concepci[oacute]n (Rio Magdalena) watershed in Mexico. The petition
therefore presents substantial information that California Gulch may be
essential to ensuring Sonora chub representation is maintained such
that it contributes to the conservation of the species.
In summary, the petition presents several arguments asserting that
revision of critical habitat for Sonora chub may be essential for the
conservation of the species. We find that information presented in the
petition regarding the importance of California Gulch to ensure the
redundancy, resiliency, and representation of Sonora chub, provides
information that this area is essential for the conservation of the
species as required by our regulations at 50 CFR 424.14(e)(5).
12-Month Determination
Section 4(b)(3)(D)(ii) of the Act states that if we find that a
petition presents substantial information indicating that a revision to
critical habitat may be
[[Page 57842]]
warranted, then within 12 months of receiving the petition we are to
indicate how we intend to proceed with the requested revision and
promptly publish a notice of our intention in the Federal Register.
Pursuant to the provisions of the Act regarding revision of critical
habitat and petitions for revision, we hereby provide notification as
to how we intend to proceed with the requested revision to the critical
habitat for Sonora chub.
We intend that any revisions to the critical habitat designated for
Sonora chub be as accurate and comprehensive as possible. Therefore, we
intend to assess potential revisions to Sonora chub critical habitat
following the completion of the next 5-year status review for the
species scheduled for release as soon as fiscal year 2027, as resources
allow. Once the 5-year review is complete, a rulemaking process may be
initiated after revisions to the species' critical habitat have been
assessed and if they are determined to be appropriate.
The currently designated critical habitat in Arizona, as well as
areas that support the species but are outside of the current critical
habitat designation, will continue to be subject to conservation
actions implemented under section 7(a)(1) of the Act. Actions affecting
Sonora chub, or its designated critical habitat, are subject to the
regulatory protections afforded by section 7(a)(2) of the Act, which
requires Federal agencies, including the Service, to ensure that
actions they fund, authorize, or carry out are not likely to jeopardize
the continued existence of any listed species or result in the
destruction or adverse modification of critical habitat.
References Cited
A complete list of references cited in this document is available
on the internet at https://www.regulations.gov at Docket No. FWS-R2-ES-
2022-0012 and upon request from the Arizona Ecological Services Field
Office (see FOR FURTHER INFORMATION CONTACT).
Authors
The primary authors of this document are the staff members of the
Arizona Ecological Services Field Office.
Authority
The authority for this 90-day finding and 12-month determination is
the Endangered Species Act of 1973, as amended (16 U.S.C. 1531 et
seq.).
Martha Williams,
Director, U.S. Fish and Wildlife Service.
[FR Doc. 2024-15490 Filed 7-15-24; 8:45 am]
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