Federal Register I Vol. 54, No. 187 I Thursday, September28, 1989 / Rules and Regulations 39857

List of Subjects in 50 CFR Part17 Regulations,is amendedassetforth 2. Amend § 17.12(h)by addingthe

Endangeredandthreatenedspecies,Fish,Marinemammals,Plants(agriculture).

below:

PART 174AMENDEDJ -

following, in alphabeticalorder, to theList of EndangeredandThreatenedPlants:

RegulationPromulgation1. Theauthority citation for part17

continuesto readasfollows:§ 17.12 Endangered and threatenedplants.

Accordingly,part17, subchapter8 ofchapterI, title 50 of theCodeof Federal

Authority:16 U.S.C.1361—1407;16 U.S.C.1531—1543:10 U.S.C.4201-4245;Pub.L 99—625, 100Stat.3500;unless otherwisenoted.

* * * *

(h) * * *

SpeciesHistoric range

COmmon name

When Critical SpecialStatUS hated habitat rules

Scientific rams

Anacardiaceae—Ceshew tamily:Thus michauxu Michaux’s sumac U.S.A. (NC, SC, GA) E 366 NA NA

Dated:September13, 1989.Richard N. Smith,ActingDirector,FishandWildlifeService.(FR Doc. 89—22848Filed9—27—89; 8:45am]BILUNG CODE 4310-55-M

50 CFR Part 17

RIN 1018-AB23

Endangered and Threatened Wildlifeand Plants; Determination ofThreatened Status for Eastern andWestern Prairie Fringed Orchids

AGENCY: FishandWildlife Service,Interior.ACTION: Final rule.

SUMMARY: TheU.S. FishandWildlifeServicedeterminesPlatantheraleucophciea(Easternprairie fringedorchid), andPlatantherapraeclara(Westernprairiefringedorchid) to bethreatenudspeciesunderauthorityoftheEndarr~credSpeciesAct (Act) of1973,as amended.Both specieshavebeenextirpatedthroughoutmuchoftheirformerrangesby conversionofhabitat for cropfields, grazing,intensiveandcontinuoushaymowing, drainage,fire protectionactivities,andsubsequentdeclineof prairie habitat.P. leucophaearemainsextantin approximately52populationsin sevenStatesandtwoCanadianProvinces;however,manyofthesearesmall, unprotected,andunmanagedpopulations.P.praeclararemainsextantin about37 population8in sevenStatesandoneCanadianProvince;manyof thesearesmallhaymeadowpopulations,whereplantsareannuallycroppedbeforeseedsaredispersed.This sectionwill implementFederalprotectionprovidedby theActfor PlatantheraleucophoeaandP.proeclorcz.

DATE.~Effective dateof this rule isOctober30, 1989.ADDRESS: Thecompletefile for this ruleis availablefor inspectionbyappointmentduring normalbusinesshoursat theService’sRegionalOffice ofEndangeredSpecies,FederalBuilding,Fort Snelling,Twin Cities,Minnesota55111.FOR FURTHER INFORMATION CONTACT:JamesM. Engel, EndangeredSpeciesCoordinatorat theaboveaddress(612/725—3276orFTS 725.3276).SUPPLEMENTARY INFORMATION:

Background

The prairiefringed orchids,PlotontheraleucophaeaandP.praeclaraarecloselyrelatedmembersof theorchidfamily andarereferredtoasaspeciespair (SheviakandBowles1986).Prior to descriptionofP.praeclarathe two specieswereconsideredasP. leucophoeo,with atotal rangeincluding 21 statesandtwoprovinces(Correll 1950, Luer1975). Theirjoint distributionpatternextendsfromOklahomanorth to Manitoba,andeastin anarrowingpeninsulathroughtheGreatLakesstatesto Maine.Populationsalso rangewestwardthroughNebraskain groundwatermaintainedhabitats.P. leucophaeaoccursprimarily eastof the MississippiRiver, while P. proeclarc is restrictedtowestof theMississippi(SheviakandBowles1986).Both speciesrequirefullsunlightandusually inhabit tall grasscalcareoussilt loam or subirrigatedsandprairies.In theeast,P. leucophoeaalsooccupiescalcareouswetlands,includingopenportionsof fens,sedgemeadows,marshes,andbogs(Bowles1983).

Theprairiefringedorchidsareperennialherbswhichregeneratefrom afusiformtuberrootstock.Their tubers

aredormantduringwinterandthusareadaptedto dormantseasonprairiefires;suchfiresandhigh precipitationlevelsappearto promoteflowering(Sheviak1974,RoosaandEilers1979, Bowles1983,Currier1984).Leavesandaninflorescence(if flowerprimordiaweresettheprior year) usuallyemergeinMay, andfloweringbeginsby late Juneto earlyJuly. Thesespeciesarecharacterizedby largewhite flowers(thelargestin the genus)arrangedin aninflorescencethatmayreach12decimeters(47 inches)high with up to 40flowers.Theflowersarefragrantaftersunsetandadaptedto pollination bynight flying hawkmothswhichingestahigh volume nectarresourcefrom longnectarspurs(Bowles1983).Pollination~isrequiredfor seedproduction,whileseedlingestablishmentdependsupondevelopmentof mycorrhizaewith afavorablesoil inhabitingfungus(reviewedin Bowles 1983).Differencesin flower structuresandpollinationmechanicsserveto isolatethespeciesfrom hybridization; thesefeaturescanbeusedto identifyliving or preservedspecimens(SheviakandBowles1986).Thewesternspecieshaslargerflowersadaptedto placingpollinia (pollenmasses)on thecompoundeyesofvisiting pollinatorsIn contrast,theeasternspeciesplacespollinia on theproboscisof visiting moths.

Platantheraleucophaeahasdeclinedover70 percentfrom original countyrecordsandnow hasabout52 extantpopulationsin sevenstates.Primarilydueto thedestructionof largegrasslandseastof theMississippiRiver,extremelylargeorextensivepopulationsof thisorchid do not exist in the UnitedStates.In Canada,12 populationsareknownfrom fensandprairiesin 12Ontariocounties;onefen populationisestimatedat 2000plants(Brownell 1984).

39858 Federal Register / Vol. 54, No. 187 / Thursday, September28, 1989 / Rulesand Regulations

Theplantis alsoknownfrom NewBrunswick,whereit is consideredrare(Hinds1963). However,mostof thesepopulationsarenot representativeof theoncevastprairiehabitat that supportedmostpopulationsof this orchid.

Platanthera/eucophaeais presumedextirpatedfromOklahoma,wherethetypespecimenwascollectedby Nuttallin 1819nearthe confluenceof theKiamichi andRedRivers; it mayhaveoccurredin similar floodplainhabitat inadjacentArkansas(SheviakandBowles1986).This orchidreachedits westernrangelimit in Nebraska,whereonehistoric recordis known(W.J. Bailey,Jr.,NebraskaGameandParksCommission,in htt. 1988). It hasnot beenrelocatedinMissouri (Morgan1980),but onesmallpopulationwith threeplants.remainsinIowa. In theeasternUnitedStates,thisorchidhasnot beenrelocatedin NewYork, Pennsylvania,NewJersey,andIndiana; isolateddisjunctpopulationsstill occurin Maine andVirginia(Bowles1983).TheMainepopulationoccursonprivateland,whichis on theState’sregisterof critical areas,inportionsof anextensivefen that isundergoingsomeinvasionby woodyvegetation.Floweringplantsappearerraticallyat this site.Thecurrentpopulationappearsto beabout20 adultindividuals (BarbaraVickery, TheNatureConservancy,in lltt. 1988).ThesmallVirginia populationoccursin asedgemeadowsubjectto light grazing.However, this populationhasnot beenobservedsince1983whenthreefloweringstemswerecounted(S.M.Carbaugh.Virginia DepartmentofAgriculture,in litt. 1988).

Theeasternprairiefringedorchid isknownhistorically from 23 Michigancounties;18 populations(abouthalfareprotected)now areextantfrom ninecounties,where1322 floweringstemswerecountedin 1984 (ChapmanandCrispin1985).SouthernMichiganpopulationsaresmallandoccurinisolatedboghabitats;while severallargerpopulationsof over100plantsoccurin lakesideprairiesborderingSaginawBay.ThreelargeMichiganpopulations,totalling about900plants. -

occuron degradeduplandprairiesborderingLakeErie. ThesesitesareStateowned,but extensivemanagementis neededto maintaintheorchidsastheir communitiesgo throughsuccessionalchanges.A populationnearBay City disappearedaftersevereflooding in 1986, andhasnot beenobservedsince(G.T.Higgs, JamesClementsAirport AdvisoryCommittee,in litt. 1988).TheSaginawBay regioncontinuesto harborthemostviablepopulationsin thestate( Chapmanand

Crispin 1985).FrederickW. Case,Jr.(1987)statesthatP. leucophaeaispossibly theregion’smostendangeredorchid becauseof thedestructionof itsmoist prairiehabitat.

Platantheraleucophaea.originallyoccurredin 11 Ohio countiesandis nowpresumedextirpatedfrom at leastsix.McCance(OhioDepartmentofConservation,in Iitt. 1987)reportedonlytwo extantpopulationsin 1987.Thelarger,containingabout60 floweringplantsin 1987,wasdown from367plantsin 1982. Theotherpopulationcontained46 floweringplantsin 1984.but only six plantswerefoundin 1987.Smith (TheNatureConservancy,in litt.1988)reportsthis populationhasfurtherdeclinedto two plants.Twootherpopulationsareknownfrom sitesfrequentlyinundatedby LakeErie. Oneof thesewaslocatedin 1987when 24plantswerecounted.Smith(1981)alsoobservedthis populationin 1988andcounted14 plants.Theothersitehasnotbeenrelocated(C.R. Moseley.Jr. OhioDepartmentof NaturalResources,in /itL1988).In Wisconsin,this orchidoriginally wasknown from 22 sitesin 17countiesin thesouthandsoutheastportionsof the8tate(Alverson1981).Fourteenof theseareknownto beextirpated(1. Dobberpuhl,WisconsinDepartmentof NaturalResources,in litL1988).Nine small populationsnow occurin eight counties.Onelargepopulationof severalhundredplantsoccursin aprotectedLakeMichiganbordersandprairie in KenoshaCounty.

Illinois probablycontainedthelargestandmostextensivepre-settlementpopulationsof theeasternprairiefringedorchid andalsosustainedthemostdraatlcpopulationdeclineof anystate.Originally it wasknownfrom tall~grassprairiesin 33 countiesacrossthenortherntwo thirdsof theState,anareanow almost totally convertedtoagriculture(BowlesandKurz 1981).Eighteenpopulationsremainin eightcountiesconcentratedin theChicagoregion; two additionalpopulationsoccurin cemeteryprairiesin easternandwesternIllinois counties.Only twopopulationsconsistof over100plants;both arein a LakeMichiganbordercounty.MOst populationsareofferedsomeform of protection,andonly eightoccuronprivateunprotectedland.

P/atantherapmec/arahasexperiencedovera60 percentdeclineaccordingto county records,with about37 populationsremainingin sevenstates(BowlesandDuxbury1988).Apparently.it hasbeenextirpatedfrom SouthDakotawhereit wasoriginally knownfrom two counties.Populationsin thesouthernpartof this orchid’srange

seldomareobserved.ThetwoOklahomapopulationsoccurinprivatelyownedhay meadowsandwereonly observedduringtheiroriginaldiscovery(MagrathandTaylor1978).This orchidwaswidespreadin easternKansas,whereit wasoriginally knownfrom 14 counties.Now, populationsarereducedto eight countieswhereit isbelievedto occurin sevenprivatelyownedhaymeadowsandoneUniversityof Kansasresearcharea(R.E.Brooks,U. of Kansas.in litt. 1987).Twosmallpopulationscurrentlyareknownto occurin northwestMissouri.Onepopulationof five plantsoccurson aprivatetract, whilea second,of about25plants,is in a haymeadowrecentlyacquiredby thestate.

Populationsin the northernandcentralportionsof thewesternprairiefringed orchid’srangearelargerandmore extensive,but still reducedin sizeandrange.This orchidprobablywasmostwidespreadin thedeepbesssoilsof Iowa, whereatotal of about600plantscurrentlyexist. Now, 13populationsareknownextantfrom 11Inwacounties(D. Howell. IowaDepartmentof NaturalResources.pers.comm.1987). Most populationsaresmall,with thelargestconsistingofabout275plants.Six of theIowapopulationsarein public orprivateconservationownershipandaremanagedby burningormowing.

Platantheraproeclarooriginally waswidespreadin easternNebraska(BowlesandDuxbury1986).Aquestionablehistoric recordfrom1842attributedto Wyoming is nowconsideredto befrom WesternNebraska(H. Marriott. The NatureConservancy,in litt. 1987).Fivepopulationsareknown from fourcounties.Twopopulationsaresmall(lessthan20 plantseach)anddisjunctinwesternNebraska;oneoccurson arailroadright-of-way, while theotherison Federalland(ValentineNationalWildlife Refuge)administeredby theU.S. FishandWildlife Service.Thefederallyownedtractis undergoingbrushinvasion.ThreeothersitesineasternNebraskaareon privateorpublic landmanagedfor conservation.Four of the five sites in Nebraskareceivesometypeof protectionandmanagement.Thelargestpopulationconsistsof about150plants.Five otherPlatantheraproeclarasites in Nebraskaareassumedextirpatedastheir statusisunknown.

Onelargescatteredpopulationoccursin NorthDakotawith approximately2000plants(BowlesandDuxbury1986).TheNorthDakotapopulationrepresentsthetype locality for Platanthera

FederalRegister / Vol. 54, No. 187 / Thursday,September28. 1989 / Rules and Regulations 398~~

proecicira (SheviakandBowles1986)andoccursprimarily onFederallyownedsandprairiemanagedby theU.S.ForestService.TheForestServicehasinitiatedamonitoringprogramfor P.praeclorain orderto establishsomebaselinedata.Guidelinesto protecttheplant duringhayingoperationsandherbicideapplicationsto control leafyspurgearein place.Researchis neededto determinewhateffectscurrentmanagementhason theorchids,andifincreasesin grazingintensitywouldnegativelyaffect theirpopulations.Sixpopulationsoccurin fourMinnesotacounties(Smith1981).The largestis inprotectedownershipandis foundat fivesiteswith about500 plants.This orchidrecentlywasdiscoveredin similarprairiehabitat in Manitoba(Browneil1984).

FederalGovernmentactionon theseplantsbeganasa resultof Section12 oftheEndangeredSpeciesAct of 1973 (16U.S.C.1531 etseq.),whichdirectedtheSecretaryof the SmithsonianInstitutionto prepareareporton plantsconsideredto be endangered,threatened,or extinct.This report(AyensuandDeFilipps1978),designatedasHouseDocumentNo. 94—51, waspresentedto CongressonJanuary9, 1975.P1atantheraleucophaca,which at that time wasplacedin thegenusHabenaria andincludedin partthe thenundescribedP.proeclara,waslistedas “threatened”in thatdocument.OnJuly 1, 1975, theServicepublishedanoticein the FederalRegister(40 FR27823)of its acceptanceof theSmithsonianreport asapetitionwithinthecontextof section4(c)(2)of theAct(now section4(b)(3))andof its intentionto reviewthestatusof plant taxanamedwithin. On June16, 1976,the Servicepublishedaproposedrule in theFederalRegister(41 FR 24523)to determineapproximately1,700vascularplantspeciesto be endangeredspeciespursuantto section4 of theAct. Thelistof 1,700plant taxawasassembledonthe basisof commentsanddatareceivedby the SmithsonianInstitutionandtheServicein responseto HouseDocumentNo. 94—51 andtheJuly 1, 1975,FederalRegisterpublication.PlotantheraleucophaeawasincludedintheJuly 1, 1975,noticeof reviewandtheJune16, 1976,proposal.Generalcommentsreceivedin relation to the1976proposalweresummarizedin theFederalRegisteron April 26. 1978 (FR17909).OnDecember10, 1979, theServicepublishedanotice(44 FR 70796)withdrawingthe portion of theJune16,1976, proposalthathadnot beenmadefinal,alongwith fourotherproposalsthathadexpireddueto aproceduralrequirementof the 1978Amendmentsto

theAct. On December15, 1980 (45 FR82479),andSeptember27, 1985 (50 FR39525),the Servicepublishedrevisednoticesofreviewfor nativeplantsin theFederalRegister.Plotan/heraleucophaeo(includingin partthethenyetundescribedP. praeclara) initiallywasincludedin thosenoticesas acategory1 species.CategoryI speciesarethosefor which biologicalinformation in theService’spossessionwarrantslisting asendangeredorthreatened.Later,this orchid wasdroppedto category2, indicatingthatfurtherbiological researchandfieldstudywereneededto ascertainitsstatus.

The EndangeredSpeciesActAmendmentsof1982requiredthatallpetitions pendingasof October13, 1982,be treatedashavingbeensubmittedonthatdate.Thedeadlinefor afinding onthosespecies,includingPlatantheraleucophaea.wasOctober13, 1983.OnOctober13, 1983, andagainin 1984,1985, 1936,and1987, thepetition findingwasthat listing of Platantheraleucophaeo(includingin partthethenyetto bedescribedP.proeclaro) waswarrantedpendingfinding of furtherbiological informationbut precludedbyotherpendinglisting actions,inaccordancewith section4(b)3(B)(iii) oftheAct. Sucha finding requiresthat thepetitionberecycled,pursuantto section4(b)(3)(C)(i) of theAct. TheOctober11,1988 (53 FR 39621)proposalto classifyPlatantheraleucophaeaandP.proeciaraasthreatenedconstitutedthefinal requiredfinding.

Summaryof CommentsandRecommendations

In theOctober11, 1988,proposedruleandassociatednotifications,allinterestedpartieswererequestedtosubmitfactualreportsor informationthatmight contributeto thedevelopmentof afinal rule. AppropriateStateagencies,countygovernments,Federalagencies,scientificorganizations,landowners,andotherinterestedpartieswerecontactedandrequestedtocomment.Noticesinviting publiccommentwerepublishedin thefollowing newspapers:ChicagoTribune,Chicago,IL; TheDesMoinesRegister,DesMoines,IA; TheGlobe-Gazette,MasonCity, IA; SiouxCity Journal.SiouxCity, IA; WaterlooCourier,Waterloo,IA; LawrenceJournal-World,Lawrence,KS; TheLeavenworthTimes,Leavenworth,KS; OttawaHerald,Ottawa,KS; TopekaCapitolJournal,Topeka,KS; BangorDailyNews,Bangor,ME; TheBoyCity Times,BayCity, MI; Detroit FreePress,Detroit,MI;ThreeRiversCommercialNews,ThreeRivers.MI; AustinDoilyHerald, Austin,

MN; C’rookstonDull;’ News,Crookston,MN; RockCountyStat-Herald,-Luverne,MN; St.JosephNews-Press/Gazette,St.Joseph,MO; The Grandislandindependent,GrandIsland, NE; TheLincoln StarandLincoln Journal,Lincoln, NE; ValentineNewspaper,Valentine,NE: TheForum,Fargo,ND;TheRansomCount;’ Gazette,Lisbon,ND; Daily News,Wahpeton,ND; TulsaTribune,Tulsa, OK; DailyNewsLeader,Staunton,VA; WisconsinStateJournal,Madison,WI; TheJanesvil/eGazette,Janesville,WI; TheMilwaukeeJournal,Milwaukee,WI; OshkoshNorthwestdrn,Oshkosh,WI betweenOctober25, andNovember3; andin theSiouxFallsArgus-Leader,SiouxFalls, SD, onNovember22, 1988.Twenty-fourcommentswerereceived,noneof whichopposedtherule. A summaryofsubstantivecommentsis presentedbelow.

Commentsweresubmittedby twoFederalagencies,twelveStateagencies,threeconservationorganizations,andsevenindividuals.Fourteenresponsessupportedlistingwhile the remainderdid not expressaposition. TheU.S.ForestServicecommentedthattheareain NorthDakota,within theSheyenneRangerDistrict (SheyenneNationalGrassland),containinganextensivepopulationof Platontherapraeciara(WesternPrairiefringed Orchid) hasbeengrazedfor about100 years,andthecontinuedexistenceof the species,andthepossibility it maybeincreasing,indicatesto themthat theremaynot beaneedto list the species.However, theForestServiceacknowledgesthatplantsmustbe listedrangewide,andbecausethespeciesis decliningelsewherewithinits range,doesnot opposethelisting.The ForestServicepointsout thatwhileovergrazingmaybecontributing to thedeclineofthe species,theredoesnotappearto bestrongevidencethatgrazingby itself is asdetrimentalto thespeciesascroplandconversion.TheForestServicehasrecognizedtheneedto integraterarespeciesmanagementinto managementactivitieson theSheyenneRangerDistrict andhasdevelopedguidelinesto protecttheplantduringhayingandpesticideapplication.TheForestServicelooks forwardto acooperativerecoveryeffort andisinitiatingan Interim ManagementPlanspecificallyfor theenhancementof thisspecies,until suchtime asresearchhasprovidedtheanswersfor furthermanagement.TheSoil ConservationServiceoffice in NorthDakotacommentedthatalitter buildup maysuppressP.proeclara,androtationalgrazingmaybe beneficial.

39860 Federal Register / Vol. 54, No. 187 I Thursday, September28, 1989 I Rulesand Regulations

TheSheyenneValley GrazingAssociationcommentedthattheServiceIs proposingto list Platantheropraeclarawithoutknowingall thefactsaboutthe species,what is idealhabitat,how mowing affectstheplant,andifanythingotherthancroppingis harmfulto the species.In addition, the GrazingAssociationexpressedconcernsaboutthemethodsoflisting plants,andifplantscouldbelistedby population,themorehealthypopulationslike the oneontheSheyenneNationalGrasslandswould beunaffected.TheAssociationdoesnot opposethelisting, but believesevenwith listing we will not haveall theanswers.Theywant to be kept informedof the situation.The Servicehascompletedrangewide statussurveysforP1atantherapraeclaraandPlatantheraleucophaea.As asresultof thesesurveys,andotherbiologicaldocumentation,theServicebelieveslisting is appropriate.Theremightbeinstanceswheresomepopulationsof theplant maybein betterconditionthanothers,but rangewide,both specieshavedeclinedsignificantly andwillcontinueto facethreatsof habitatdestructionandalteration.By placingthesespeciesundertheprotectionof theAct, theService,andothercooperatingFederalandStateagencieswill be ableto completerecoveryplans,initiate andcompleteresearch,andcompleteothermanagementactionsthatwill provideinformationto enhanceboth species’survival.

Theremainingcomments,from Stateagencies,privateconservationorganizations,andindividualsprovidednew speciesstatusinformation,adviceof additionalstateprotection,or lackthereof,mentionedtheexistenceoflocalizedthreatsto thespecies.andofferededitorialcommentsconcerningtherule. Thesecommentshavebeenincorporatedinto this final rule asdeemedappropriate.A letter from aprivateconservationgroupsupportingthe listing wassignedby 28 membersoftheorganization.

Summaryof FactorsAffecting theSpecies

After a thoroughreviewandconsiderationof all informationavailable,theServicehasdeterminedthatPlatantheroleucophaea(Nutt.)Lindl. andPlatantherapraeclaraSheviakandBowlesshouldbe classifiedasthreatenedspecies.Proceduresfoundat section4(a)(1)of the Act andregulations(50 CFR part424)promulgatedto implementthelistingprovisionsof theAct were followed.Aspeciesmaybedeterminedtobeendangeredor threateneddue to oneormoreof the five factorsdescribedin

section4(a)(1).Thesefactorsandtheirapplicationto Platantheraleucophaeo(Nutt.) Lindi. andPlatantheraproeclaroSheviakandBowlesareasfollows:

A. ThePresentor ThreatenedDestruction,Modification.orCurtailmentof Its Habitat or Range

Theprairie fringedorchidshavedeclinedsignificantly throughouttheirrangesdueto conversionof mostof theirhabitatsto cropland,overgrazing,intensivehaymowing,drainage,andforfire protection;theseandrelatedthreatscontinue.Manyof thelargestPlatantheroleucophaeapopulationsoccurin habitatssupportingsuccessionalvegetation.Withoutmanagementthesepopulationsmaydeclinein responseto changingvegetationpatterns.Manyotherpopulationsaresmallandoccuronsmall isolatedprairieremnants,whereseedsetandreproductionis limited bydependenceon chancevisitationfrompollinators.Over35 percentof theknownpopulationsof Platantherapraeclaraoccurin haymeadows;theseplantsseldomare seen,andpopulationsapparentlyaresmall.Haymowingannuallyremovesseedcapsulesandplant biomassbeforenaturalseeddispersalcanoccur.Thispreventsrecruitmentof seedlingsintopopulationsandprobablyweakensadult plants,resultingin gradualpopulationdeclinethroughattrition(Bowles1983,Bowles andDuxbury1986).Changinglandusealsothreatenshaymeadowpopulations.At leastfourKansashaymeadowsknown to supportPlatontheraproeclarapopulationshavebeenconvertedto cultivatedcroplandsincetheirdiscoveryin the 1970’s,whileoneOklahomahaymeadownow isthreatenedwith subdivision(BowlesandDuxbury1986).Theuseofherbicides,especiallyon highwayandrailroadrights-of-way,continuestothreatenthesespeciesin a numberofinstances(P.E.DeHond,MainePlanningOffice, in litt. 1988,andL.G. Hiller,. Ft.Ranson,ND, in litt. 1988).

B. Overutiizationfor Commercial,Recreational,Scientific,or EducationalPurposes

Nativeterrestrialorchidsrarelyaregrownfrom seed;adult plantsareoftensoughtfor scientificandcommercialpurposes,or for privategardens.Smallerpopulationsof theprairie fringedorchidswould beadverselyaffectedbycollecting.Becauseof higherhumanpopulationdensitiesin theeast,theeasternprairie fringedorchid is subjectto greaterscientific andcommercialpressures;at leastoneMichiganpopulationwasaffectedby removalof

plants.However,becauseof the recentdescriptionof Platantherapraeclara(westernprairiefringed orchid)anditsusuallysmallpopulations,over-collectingmay alsobecomeaseriousproblemfor this species.At leastoneinstanceof removalof a westernprairiefringedorchidplant for commercialpurposeshastakenplacein Minnesota.

C. Diseaseor Predation

No diseasesareknown to beadverselyaffectingeitherprairie fringedorchidspecies.All inflorescenceswereremovedfrom oneMinnesotapopulationof Platantherapraeclaraby anunknownherbivore,but the long term impactremainsunknown.Coneheadgrasshoppers(Orthoptera:Neocoriocephalus)occasionallyareobservedeatingthe flowersor fruits oftheseorchids.However, the majorpredatoris man throughuseof thisorchid’s communityfor pastureorhay.Long termovergrazingorhayingapparentlyleadsto populationdeclinebecauseplantseitherareharvestedorarenotallowedto completetheir lifecycles.

D. TheInadequacyof ExistingRegulatoryMechanisms

Theprairie fringedorchidsareformally or officially listedasendangered,threatened,or rarein tenstates(IA, IL ME, Ml, MN, MO, NE, ND.OH, WI) throughouttheirrange.However,only a few stateswherethesespeciesareextantofferprotectiontolisted plantsbeyondthataffordedbytheir presenceon public lands.Statelaws of Illinois, Iowa, Minnesota,Michigan, andMissouri prohibit theremovalandsaleof listedplants.Michigan prohibitstransport,buying.selling,possessing,ordestroyingin anymanner.In Wisconsin,Ohio,andNewYork it is illegal to harvestendangeredor threatenedplants.AlthoughPlatantheroleucophaeaandP.praeclaraareofferedvariousformsofrecognitionorprotectionunderstatelaws, theEndangeredSpeciesAct offerspossibilitiesfor protectionthroughsection6by cooperationbetweenStatesand theService,andcooperationwithotherFederalagenciesthroughsection7(interagencycooperation)requirements.TheplantsareconsideredrareinCanada,butarenotaffordedanyofficial designationorprotection.

E. OtherNaturalor ManmadeFactorsAffectingIts ContinuedExistence.

Pollinationof theprairiefringedorchidsis requiredfor seedset, andisaccomplishedonly by hawkmoths(Sphingidae).Asaresult,long-term

FederalRegister I Vol. 54, No. 187 / Thursday, September28, 1989 / Rulesand Regulations 39R~l

populationsurvivalrequiresmaintenanceof hawkmoths.Any threatto theseinsects(suchas theuseofinsecticides)or theirhabitatsandfoodplants,is athreatto survivalof prairiefringedorchids.

The Servicehascarefullyassessedthebestscientificinformationavailableregardingthepast,present,andfuturethreatsfacedby thesetaxa,indeterminingto makethis rulefinal.Basedon this evaluation,thepreferredactionis to list PlotantheraleucophaeaandFlatantheraproeclaraasthreatenedspecies.becauseof theknownlossofmostof theirpopulationsandhabitat,andcontinuedthreatsto existingpopulations.Forreasonsdetailedbelow,it is not consideredprudentto proposedesignationof critical habitat.

Critical Habitat

Section4(a)(3)of theAct requires,tothemaximumextentprudentanddeterminable,that theSecretarydesignatecritical habitatat thetime thespeciesis determinedto beendangeredor threatened.The designationof criticalhabitatis not consideredto beprudentwhensuchdesignationwould not beofnetbenefit to thespeciesinvolved (50CFR424.12).In thepresentcase,theServicebelievesthat designationofcritical habitatwould not beprudentbecauseno benefitto thespeciescanbeidentifiedthatwouldoutweighthepotentialthreatof vandalismorcollection,whichmight beexacerbatedby the publicationof a detailedcriticalhabitatdescription.

AvailableConservationMeasures

ConservationmeasuresprovidedtospecieslistedasendangeredorthreatenedundertheEndangeredSpeciesAct includerecognition,recoveryactions,requirementsforFederalprotection,andprohibitionsagainstcertainpractices.Recognitionthroughlisting encouragesandresultsinconservationactionsby Federal,State,andprivateagencies,groups,andindividuals.The EndangeredSpeciesAct pr’w,des for possiblelandacquisitionandcooperationwith theStates.It also requiresthatrecoveryactionsbe carriedout for all listedspecies.Theserecoveryactionsareinitiatedby theServicefollowing listing.Somemaybeundertakenprior to listing,circumstancespermitting.PotentialhabitatmanagementactionsthatmightbenefitPlotantheraieucophaeaandP.proeclarainclude:evaluationandspecificmanagementactionson publiclandsto enhanceorchid populations,landprotectionmeasureswhichwillreducefrequentdisturbanceto bothspecies’habitat,andaprogramfor

landownersto educatethemaboutthenatureof their orchidpopulationsandhowtheymight altermanagementoftheirproperty to benefitthesespecies.Theprotectionrequiredby Federalagenciesandapplicableprohibitionsarediscussedbelow.

Section7(a)of theAct, asamended,requiresFederalagenciesto evaluatetheiractionswith respectto anyspeciesthatis proposedor listedasendangeredor threatenedandwith respectto itscritical habitat,if anyis beingdesignated.Regulationsimplementingthis interagencycooperationprovisionof theAct arecodifiedat 50 CFR part402. Section7(a)(Z) requiresFederalagenciesto insurethatactivitiestheyauthorize,fund,or carryout arenotlikely to jeopardizethe continuedexistenceof a listedspeciesortodestroyor adverselymodify its criticalhabitat.If aFederalactionmayaffectalistedspeciesor its critical habitat,theresponsiblefederalagencymustenterinto formalconsultationwith theservice.

TheFoodSecurityAct of 1985 (Pub.L.99—198) alsoprovidesat sections1314and1318opportunitiesfor theServiceandStateconservationagenciestoacquirerestrictiveeasementsbeneficialto endangeredandthreatenedspecieson landsacquiredby theFarmersHomeAdministrationin the courseof farmforeclosures.Uponnotificationby theFarmersHomeAdministration ofpendingforeclosures,theServiceiscontinuallyreviewingpossibleareas

•whererestrictiveeasementswouldbenefitendangeredandthreatenedspecies.

No Federalinvolvementis expectedfor Platantheraleucophoecsincethespeciesis notknownto occuron Federallands.Platantherapraeclarois knownto occuron landsunderthe jurisdictionof theU.S. FishandWildlife ServiceontheValentineNational Wildlife Refuge,in Nebraska.Grazingmanagementplanson the refugeshouldconsidertheeffectslivestockhason the species.Apopulationmonitoring programfor P.praeclarashouldbeinitiated. A widelyscatteredpopulationof P.pi’aeclara isfoundon theSheyenneNationalGrassland,CusterNationalForest,RansomandRichiandcounties,NorthDakota.This populationextendsoverseveralthousandacresmanagedby theU.S. ForestServicewhichin turn leasestheareato the SheyenneValley GrazingAssociationfor livestockproduction.The ForestServiceand theGrazingAssociationareawareofP. praeclara.Thespeciesis foundon 25 of the 58allotmentswithin theSheyenneNationalGrassland.In orderto meetthe

intentof theAct, theU.S.ForestService,in cooperationwith theService,theStateof NorthDakota,andtheSheyenneValley GrazingAssociation,isinitiating interimgrazingmanagementactionson theSheyenneNationalGrasslandswhich is designedtosafeguardP.praeclarauntil suchtimeasrecoveryresearchhasbeencompletedthatshould provideresultsto guideus infuture management.Researchwill soonbeunderwaywhich will allow us tobetterunderstandwhichtypesofmanagementactionswithin theGrasslandareamightbebeneficialto P.praeclara.Cooperativediscussionsbetweenthe ForestService,theGrazingAssociation,andtheServicehavebeeninitiated.It will benecessaryfor theForestServiceto enterinto consultationwith the Serviceso thatPlotantheroproeclaraplantsareconsideredin thecourseof activities carriedoutby thatagency.It hasbeenthe experienceof theServicethat themajorityof section7consultationsareresolvedso that thespeciesis protectedandthe projectcancontinue.

TheAct andits implementingregulationsfound at 50 CFR 17.71 and17.72setforth a seriesof generaltradeprohibitionsandexceptionsthatapplyto all threatenedplants.With respecttoPlatantheraleucophaeaandP.praeclara,all tradeprohibitionsofsection9(a)(2)of theAct, implementedby 50 CFR 17.71, will apply. Theseprohibitions,in part,makeit illegal foranypersonsubjectto the jurisdictionoftheUnitedStatesto importor export,transportin interstateorforeigncommercein thecourseof a commercialactivity, sell oroffer for salethesespeciesin interstateor foreigncommerce,or removeandreducetopossessionthesespeciesfrom areasunderFederaljurisdiction. Seedsfromcultivatedspecimensof threatenedplantspeciesareexemptfrom theseprohibitionsprovidedthata statementof “cultivated origin” appearson theircontainers.In addition,for listedplants,the1988amendments(Pub.L 100-478)totheActprohibit themaliciousdamageordestructionon Federallandsandtheremoval,cutting, diggingup, ordamagingor destroyingof listedplantsin knowingviolation of anyStatelaw orregulation,including Statecriminaltrespasslaw. Certainexceptionswouldapplyto agentsof theServiceandStateconservationagencies.The Act and50CFR 17.72alsoprovide for the issuanceofpermits to carryout otherwiseprohibitedactivitiesinvolvingthreatenedspeciesundercertaincircumstances.It is anticipatedthatsometradepermits would be issued

39862 FederalRegster/ Vol. 54, No. 187 I Thursday, September28, 1989 / Rules and Regulations

becausetheseplantsbelongto theorchid family, speciesof which now aresoughtfor cultivation.

OnJuly1, 1975, Platantheraleucophaeawasincludedin AppendixIIof the Conventionon InternationalTradein EndangeredSpeciesof WildFaunaandFlora(CITES),whichisimplementedthroughsectionBA of theAct. Theeffectof this listing is thatgenerally,both exportandimportpermitsarerequiredbeforeinternationalshipmentmayoccur.Suchshipmentisstrictly regulatedby CITES membernationsto preventit frombeingdetrimentalto thesurvivalof thespecies,andgenerally,cannotbeallowedif it is for primarily commercialpurposes.If plantsarecertifiedasartificially propagated,however,internationalshipmentrequiresonlyexportdocumentsunderCITES, andcommercialshipmentsmhy be allowed,Requestsfor copiesof theregulationsonplantsandinquiriesregardingthemmaybeaddressedto theOffice ofManagementAuthority, U.S. Fish andWildlife Service,P.O.Box 3507,Arlington, VA 22203,(703/358—2093).

NationalEnviromnentalPolicy Act

TheFishandWildlife ServicehasdeterminedthatEnvironmentalAssessments,asdefinedundertheauthorityof theNationalEnvironmentalPolicy Act of 1969, neednot bepreparedin connectionwith regulationsadoptedpursuantto section4(a)of theEndangeredSpeciesAct of 1973,asamended.A noticeoutlining theService’sreasonsfor this determinationwaspublishedin theFederalRegisterOctober25, 1983 (48 FR 49244).

ReferencesCitedAlverson,W.S.1981.Reporton the

Wisconsinstatusof Platantheraleucophaea.Unpublishedreport. 17 pp.

Ayensu,R.E., andR.A. DeFilipps.1978.Endangeredandthreatenedplantsof theUnitedStates.SmithsonianInstitution andWorld Wildlife Fund.403 pp.

Bowles,M.L. 1983.ThetallgrassprairieorchidsPlatantheraIeucophaea(Nntt.)Lindl.andCyripedium candidum Muhi. exWilld.:

Someaspectsof their status,biology,andecology,andimplicationstowardmanagement.NaturalAreasJournal3: 14—37.

Bowles.M.L. . andD. Kurz. 1981. ReportontheIllinois statusof Platantheraleucophaea.Unpublishedreport.8 pp.

Bowles,ML., andA. Duxbury. 1986.Reporton thestatusof PlatantheraleucophaeoSheviak& Bowlesin Oklahoma.Kansas,Nebraska,SouthDakota, andNorthDakota.Unpublishedreport.76 pp.

Brower,A.E. 1977.Theprairiewhite fringedorchidHabenarialeucophoea(Nutt.)GrayinMaine andits relevanceto theCritical AreasProgram.MaineState PlanningOffice.Unpublishedreport.

BrownelL V.P. 1984. Reporton thepr~iriefringed orchid(Platantheraleucophaea):ararespeciesIn Canada.Unpublishedreport.

Case.F.W.,Jr. 1987.Orchidsof theWesternGreatLakesRegion.CranbrookInstituteofScience.Bulletin48.

Chapman,K.A. 1981. Reporton theMichiganstatusof Hobenarialeucophaea.Biology Department.Unpublishedreport.7pp.

Chapman,K.A.. andS.R. Crispin,1985.Reporton acomprehensivesurveyforPlatantheraleucophoeain Michigan.Unpublishedreport.20 pp.

Correll, D.C. 1950. Nativeorchidsof NorthAmericanorthof Mexico. ChronicaBotanicaCo., Waltham,MA.

Currier, P.J.1984.Responseof prairiefringedorchidto fire andreductionin grazing(Nebraska).RestorationandManagementNotes2: No. 17.

Hauser,LA., T.J. Crovello, andJ.A.Bacone.1981. Reporton theIndianastatusofPlatanthemIeucophaea(Nutt.) Lindl.Unpublishedreport.6 pp.

Hinds, H.R. 1983. Therarevascularplantsof NewBrunswick.23 pp.

Luer, C.A. 1975. Thenativeorchidsof theUnitedStatesandCanada,excludingFlorida.New York BotanicalGarden.

Magrath,LK., andI. Taylor. 1978. Orchidsandothernew andinterestingplantsfromOklahoma.PublicationNo, 2. Herbarium.SoutheasternOklahomaStateUniversity,Durant.

Morgan,S.M.1980.Reporton theMissouristatusof Platantheroleucophaea(Nuti)Lindl. MissouriDepartmentof Conservation.13 pp.

Roosa,S.J., andL.J. Eilers.1979.EndangeredandthreatenedIowavascularplants.StateConservationCommission.pp.39.

Sheviak.C.J.1974. An introductionto theecologyof theIllinois Orchidaceae.IllinoisStateMuseumScientificPaper14..

Sheviak,C.J..andM.L Bowles.1986.Theprairiefringedorchids:a pollinator-isolatedspeciespair, Rhodora88:267—290.

Smith, W.B. 1981. Reporton theMinnesotastatusof PkztantheraIeucophaea(Nutt.lLindl. Minnesota.Departmentof NaturalResources.10 pp.

Spooner.D.M. 1981.Reporton theOhiostatusof PlotantheraIeucophoea(Nutt.)Lindi. Ohio Departmentof NaturalResources.11 pp.

Tyrl, R.J.,J.L. Gentry, Jr.,P.G. Risser,andJ.J. Crockett.1978. Field SurveysandStatusEvaluationon Proposedand CandidateEndangeredandThreatenedPlantSpeciesinOklahoma.Unpublishedreport.pp. 227—236.

Watson,W.C. 1983.Reportof Platontheraleucophaeo(Nutt ) Lindi. in Iowa.Universityof NorthernIowa.Unpublishedreport. 22 pp.

Author

The primary authorof this rule isWilliam F. Harrison(seeADDRESSESsection).Preliminarydocumentationwaspreparedunder contractby MarlinL. Bowles, The Morton Arboretum, Lisle,IL

List of Subjectsin 50 CFR Part17

Endangeredandthreatenedspecies,Fish,andMarinemammals,Plants(agriculture).

PART 17—EAMENDED]

Accordingly,part17, subchapterB ofchapterI, title 50 of theCodeof FederalRegulations,is amendedassetforthbelow:

1. Theauthority citation for part17continuesto readas follows:

Authority: 16U.S.C.1361—1407; 18 U.S.C.1531—1543;16 U.S.C.4201—4245;Pub.L. 99—625, 100 Stat.3500; unlessotherwisenoted.

2. Amend ~17.12(h)by addingthefollowing, in alphabeticalorderunderthefamily Orchidaceae.to theList ofEndangeredandThreatenedPlants:

§ 17.12 Endangeredandthreatenedplants.

(h) * * *

FederalRegister/ Vol. 54, No. 187 / Thursday, September28, 1989 / Rules and Regulations 39Ø~3

Dated:September14, 1989.BruceBlanchard,ActingDirector, Fish andWildlifeService.(FR Dec.89-22849Filed 9—27-89~,8:45am)PILUNG COVE 4310-55-M

peciesHistoric Range Status en

ISteuicaflat

...~oafliesScientif ic name Common Name

Orchidaceae-Orchid family:

P/afanthera Ieucop/-ieea Eastern prairie fringed orchid U.S.A. (AR, IA, IL, IN, ME, MI, MO, NE, NJ,NV, OH, OK, PA, VA, WI). Canada (ON. NB).

T 367 NA NA

Platantherapraeciara Western prairie fringed orchid U.S.A. (IA, MN, MO, NE, ND, OK, KS, SD),Canada (MB).

T 367 NA NA