[Federal Register Volume 62, Number 148 (Friday, August 1, 1997)]
[Proposed Rules]
[Pages 41328-41333]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 97-20368]


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DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service

50 CFR Part 17

RIN 1018-AE32


Endangered and Threatened Wildlife and Plants; Proposed 
Endangered Status for a Plant in the Wenatchee Mountains of Washington

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Proposed rule.

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SUMMARY: The U.S. Fish and Wildlife Service (Service) proposes 
endangered species status pursuant to the Endangered Species Act of 
1973, as amended (Act), for Sidalcea oregana var. calva (Wenatchee 
Mountains checker-mallow). This plant is endemic to meadows that have 
surface water or saturated soil in the spring and early summer at 
middle elevations in the Wenatchee Mountains of Chelan County, 
Washington. Although five populations of this plant are known, three of 
these have very few individuals. The estimated total number of plants 
is about 3,300. The primary threats to S. oregana var. calva include 
alterations of hydrology, rural residential development and associated 
activities, competition from native and alien plants, recreation, fire 
suppression, and activities associated with fire suppression. To a 
lesser extent, the taxon is threatened by livestock grazing, road 
construction, and timber harvesting and associated impacts including 
changes in surface-runoff in the small watersheds in which the plant 
occurs. This proposal, if made final, would implement the Federal 
protection and recovery programs of the Act for this plant.

DATES: Comments from all interested parties must be received by 
September 30, 1997. Public hearing requests must be received by 
September 15, 1997.

ADDRESSES: Comments and materials concerning this proposal should be 
sent to the Supervisor, U.S. Fish and Wildlife Service, Western 
Washington State Office, 510 Desmond Drive SE, Suite 102, Lacey, WA 
98503. Comments and materials received will be available by appointment 
for public inspection during normal business hours at the above 
address.

FOR FURTHER INFORMATION CONTACT: Ted Thomas (see ADDRESSES section), 
(telephone 360/753-4327, facsimile 360/534-9331).

SUPPLEMENTARY INFORMATION:

Background

    Although the species Sidalcea oregana (Oregon checker-mallow) is 
widespread throughout much of the western United States, S. oregana 
var. calva (Wenatchee Mountains checker-mallow) is known only from the 
Wenatchee Mountains of central Washington. Specimens assignable to var. 
calva were first collected from Icicle Creek near Leavenworth, Chelan 
County, and from wet meadows near Peshastin, Chelan County, by Sandberg 
and Leiburg on July 25, 1893. Occasional collections were made over 
subsequent decades until the type specimen was collected by Hitchcock 
on June 21, 1951, from Camas Land in Chelan County. The taxon was first 
recognized as a distinct variety named S. oregana ssp. oregana var. 
calva by Hitchcock and Kruckeberg (1957). Hitchcock and Cronquist 
(1973) reduced S. oregana ssp. spicata to varietal status (S. oregana 
var. spicata), thereby eliminating the need to include the subspecies 
oregana as part of the scientific name for this taxon. No further 
taxonomic revisions have been made for this taxon. In recent

[[Page 41329]]

discussions, knowledgeable individuals confirmed the distinctness of 
this variety (Arthur Kruckeberg, Emeritus Professor of Botany, 
University of Washington, pers. comm. 1995; John Gamon, Botanist, 
Washington Natural Heritage Program, pers. comm. 1996).
    A member of the mallow family (Malvaceae), Sidalcea oregana var. 
calva is a perennial plant with a stout taproot that branches at the 
root-crown and gives rise to several stems that are 20 to 150 
centimeters (cm) (8 to 60 inches (in)) tall. Plants vary from glabrous 
(lacking hairs and glands) to pubescent (hairy) or stellate (with star-
shaped hairs) below, finely stellate above, and have simple to compound 
racemes of flowers with pink petals 1 to 2 cm (0.4 to 0.8 in) long. The 
flowers are borne on stalks ranging from 1 to 10 millimeters (mm) (0.1 
to 0.4 in) in length; the calyx (outer whorl of floral parts) ranges 
from uniformly finely stellate to bristly with a mixture of longer, 
simple to four-rayed, spreading hairs sometimes as long as 2.5 to 3 mm 
(0.1 to 0.12 in) (Hitchcock and Cronquist 1961). Flowering begins in 
the middle of June and peaks in the middle to end of July. Fruits are 
ripe by August. Sidalcea oregana var. calva is similar morphologically 
to S. oregana var. procera, which occurs in the same general region but 
with a more southerly distribution. Sidalcea oregana var. calva can be 
distinguished from var. procera by the type and degree of pubescence on 
the stems and calyx and its large, fleshy, basal leaves, which are 
smooth to the touch on both surfaces (Gamon 1987).
    The site of the 1893 collection at Peshastin and three other early 
(pre-1940) collections in the Peshastin area have not been relocated. 
The location given for each of these early collections was too vague to 
allow for relocation. Because much of the Peshastin and Leavenworth 
area has been converted to orchards or other agricultural uses and 
urban development, Sidalcea oregana var. calva likely has been 
extirpated from this area. Three other occurrences thought to be 
Sidalcea oregana var. calva were resurveyed and found to be S. oregana 
var. procera (Gamon 1987). At three sites of S. oregana var. calva 
discovered in 1984, no plants were found in 1987, possibly because the 
one to three plants reported in 1984 went undetected (Gamon 1987).
    Sidalcea oregana var. calva is known to occur at five sites. The 
largest population, at Camas Land, occurs on private land and on State 
of Washington land managed as a natural area by the Department of 
Natural Resources (DNR). Based on a recent inventory, about 2,470 
individuals occur on 36 hectares (ha) (90 acres (ac)) of DNR land 
(Washington Natural Area Program 1997); these plants are thought to 
represent about 75 percent of the Camas Land population (David 
Wilderman, DNR, pers. comm. 1997). The second largest population, 
discovered in 1987 on private land at Mountain Home Meadow, consists of 
about 100 plants within a few hectares. Two other populations on Forest 
Service lands have a total of seven plants. The fifth population, on 
private land, has fewer than 30 plants. The estimated total number of 
plants at the five sites is 3,300. The total area of the five sites is 
about 50 ha (125 ac).
    Sidalcea oregana var. calva is most abundant in moist meadows that 
have surface water or saturated upper soil profiles during spring and 
early summer, but it also occurs in open conifer stands dominated by 
Pinus ponderosa (ponderosa pine) and Pseudotsuga menziesii (Douglas-
fir), and on the margins of shrub and hardwood thickets. Extant 
populations of the taxon are found at elevations ranging from 600 to 
1,000 meters (m) (1,900 to 4,000 feet (ft)). Soils are typically clay-
loams and silt-loams with low moisture permeability. Associated species 
include Populus tremuloides (quaking aspen), Crataegus douglasii (black 
hawthorn), Symphoricarpus albus (common snowberry), Amelanchier 
alnifolia (serviceberry), Lathyrus pauciflorus (few-flowered peavine), 
Wyethia amplexicaulis (northern mule's-ear), Geranium viscosissimum 
(sticky purple geranium) and Veratrum californicum (California false 
hellebore). Sixty percent of the S. oregana var. calva populations are 
found in association with Delphinium viridescens (Wenatchee larkspur), 
a former Federal candidate plant species.

Previous Federal Action

    Federal action on Sidalcea oregana var. calva began as a result of 
section 12 of the Endangered Species Act of 1973, which directed the 
Secretary of the Smithsonian Institution to prepare a report on those 
plants considered to be endangered, threatened, or extinct in the 
United States. This report, designated as House Document No. 94-51, was 
presented to Congress on January 9, 1975, and included S. oregana var. 
calva. The Service published a notice in the July 1, 1975, Federal 
Register (40 FR 27823) of its acceptance of the report of the 
Smithsonian Institution as a petition within the context of section 
4(c)(2) (now section 4(b)(3) of the Act) and of its intent thereby to 
review the status of S. oregana var. calva. On June 16, 1976, the 
Service published a proposed rule in the Federal Register (41 FR 24523) 
to determine approximately 1,700 vascular plant taxa to be endangered 
species. This list, which included S. oregana var. calva, was assembled 
on the basis of comments and data received by the Smithsonian 
Institution and the Service in response to House Document No. 94-51 and 
the July 1, 1975, Federal Register publication. The Service published 
an updated notice of review for plants on December 15, 1980 (45 FR 
82480). This notice included S. oregana var. calva as a category 1 
candidate species. Category 1 candidates were defined as taxa for which 
the Service had on file substantial information on biological 
vulnerability and threats to support preparation of listing proposals.
    The notice of review published on September 27, 1985 (50 FR 39526), 
included Sidalcea oregana var. calva as a category 2 candidate species. 
Category 2 candidates were defined as taxa for which information in 
possession of the Service indicated that proposing to list the taxa as 
endangered or threatened was possibly appropriate, but for which 
substantial data on biological vulnerability and threats were not 
currently known or on file to support a listing proposal. This species 
was designated as a category 2 candidate in the September 27, 1985, 
notice of review because of improper identification and mistaken 
beliefs regarding distribution at three locations in Kittitas County. 
Subsequent notices of review published on February 21, 1990 (55 FR 
6185), and September 30, 1993 (58 FR 51144), identified the plant as a 
category 1 candidate species. Sidalcea oregana var. calva was included 
as a candidate in the February 28, 1996, notice.
    Section 4(b)(3)(B) of the Act requires the Secretary to make 
certain findings on pending petitions within 12 months of their 
receipt. Section 2(b)(1) of the 1982 amendments further requires that 
all petitions pending on October 13, 1982, be treated as having been 
newly submitted on that date. This was the case for Sidalcea oregana 
var. calva because the 1975 Smithsonian report had been accepted as a 
petition. On October 13, 1983, the Service found that the petitioned 
listing of this species was warranted, but precluded by other pending 
listing actions, in accordance with section 4(b)(3)(B)(iii) of the Act; 
notification of this finding was published on January 20, 1984 (49 FR 
2485). Such a finding requires the petition to be recycled, pursuant to 
section 4(b)(3)(C)(i) of the Act. The finding was reviewed annually in 
October of 1984 through 1996. Publication of this proposal constitutes

[[Page 41330]]

the final finding for the petitioned action.
    Sidalcea oregana var. calva has a listing priority number of three. 
The processing of this rule conforms with the Service's final listing 
priority guidance published on December 5, 1996 (61 FR 64475). The 
guidance clarifies the order in which the Service will process 
rulemakings following two related events, the lifting, on April 26, 
1996, of the moratorium on final listings imposed on April 10, 1995 
(Public Law 104-6), and the restoration of significant funding for 
listing through passage of the omnibus budget reconciliation law on 
April 26, 1996, following severe funding constraints imposed by a 
number of continuing resolutions between November 1995 and April 1996. 
The guidance calls for giving highest priority to handling emergency 
situations (Tier 1), second highest priority to resolving the listing 
status of the outstanding proposed listings (Tier 2), and third highest 
priority to resolving the conservation status of candidate species and 
processing administrative findings on petitions to add species to the 
lists or to reclassify threatened species to endangered status (Tier 
3). This proposed rule falls under Tier 3.

Summary of Factors Affecting the Species

    Section 4 of the Endangered Species Act (16 U.S.C. 1533) and 
regulations (50 CFR part 424) promulgated to implement the listing 
provisions of the Act set forth the procedures for adding species to 
the Federal Lists. A species may be determined to be an endangered or 
threatened species due to one or more of the five factors described in 
section 4(a)(1) of the Act. These factors and their applications to 
Sidalcea oregana (Nutt) var. calva C.L. Hitchcock (Wenatchee Mountains 
checker-mallow) are as follows:

A. The present or threatened destruction, modification, or curtailment 
of its habitat or range.

    All known sites and habitats for Sidalcea oregana var. calva have 
undergone various alterations. Conversion of land to orchards or other 
agricultural uses and residential development are thought to have 
extirpated historical populations (Gamon 1987). Numerous houses already 
exist at Camas Land, the site of the largest population of the taxon; 
two houses have been built since 1987 (Ted Thomas, Service, pers. obs. 
1995). Current threats to this population are posed by further 
subdivision for residences and associated habitat modifications such as 
alterations in hydrology, increased nutrient loads into the meadow from 
septic systems, introduction of non-native grasses, conversion of 
portions of the meadow to agricultural uses including pastureland and 
gardens, access road construction, and trampling by people and off-road 
vehicles (Gamon 1987; T. Thomas, pers. obs. 1995; David Wilderman, DNR, 
pers. comm. 1997).
    Natural drainage channels at Camas Land have been altered to direct 
water away from the meadow for agricultural purposes (Gamon 1987; Richy 
Harrod, U.S. Forest Service, pers. comm. 1996; D. Wilderman, pers. 
comm. 1997). Alterations in hydrology threaten the species by changing 
the amount, timing, duration, and/or frequency of the water supply to 
the habitat for the taxon. Most individuals of Sidalcea oregana var. 
calva in the Camas Land meadow are associated with the drainage 
channels or areas which retain moisture longer (Gamon 1987).
    Sheep, horses, and cows trample vegetation, compact soils, and 
serve as vectors for introducing non-native plant seeds either directly 
or through their feed. Portions of the meadow have also been seeded to 
non-native grasses to increase forage for livestock. Sidalcea oregana 
var. calva is generally absent from these areas except for occasional 
individuals along the periphery, suggesting that the introduced species 
have the ability to displace the taxon through competition for 
nutrients or water (Gamon 1987; R. Harrod, pers. comm. 1996). Sod-
forming, non-native grasses have also been planted near residences from 
which they are encroaching into the meadow (T. Thomas, pers. obs. 
1995).
    Recreational use of the meadow has had significant local impacts 
and continues to impact the population of Sidalcea oregana var. calva 
at Camas Land (Gamon 1987; D. Wilderman, pers. comm. 1997). A variety 
of recreational activities occur including trailbike riding, bowhunting 
competitions, and camping. These activities contribute to the decline 
of the species by causing trampling of plants and compaction of the 
soil.
    Timber harvest has occurred throughout the general Camas Land area 
(R. Harrod, pers. comm. 1996). Local ground disturbance associated with 
timber harvest, such as log yarding and slash disposal, probably poses 
a greater threat than tree removal (Gamon 1987). Timber harvest may 
also have long-term effects on hydrology in the small watershed.
    The Camas Land population was also adversely impacted by fire 
suppression activities associated with the Rat Creek Fire during the 
fall of 1994 (Harrod 1994; T. Thomas, pers. obs. 1995). Several hundred 
Sidalcea oregana var. calva  plants were bladed by a bulldozer during 
construction of a fire safety zone in a small drainage flowing into 
Camas Land meadow. During a visit to the disturbed site in May of 1995, 
no sprouts or seedlings of S. oregana var. calva were observed (T. 
Thomas, pers. obs. 1995). The likelihood of recovery of S. oregana var. 
calva within the disturbed portion of the population appears low (R. 
Harrod, pers. comm. 1996).
    A second population, at Mountain Home Meadow, was also adversely 
impacted by fire suppression activities associated with the Rat Creek 
Fire during 1994 (Harrod 1994). A fire safety area was constructed in 
the wetland supporting this population of Sidalcea oregana var. calva. 
Blading of the area by a bulldozer destroyed approximately 50 percent 
(more than 100 plants) of the population, disturbed the soil, and 
altered the hydrology of this wet meadow. One year after the 
disturbance, no S. oregana var. calva plants were observed at this 
location (T. Thomas, pers. comm. 1995). The likelihood of recovery of 
the destroyed portion of this population appears low (R. Harrod, pers. 
comm. 1996).
    The potential for forest fires is high in the east side ponderosa 
pine and Douglas-fir forest type. Because fires that threaten private 
property and public structures will require suppression, the likelihood 
for further direct disturbance to Sidalcea oregana var. calva 
populations in the future remains high. In addition, fire may play a 
role in the maintenance of suitable habitat for Sidalcea oregana var. 
calva (Gamon 1987), and fire suppression has probably resulted in less 
suitable habitat (R. Harrod, pers. comm. 1996). In the absence of fire, 
conifer recruitment and woody plant invasion may reduce the amount of 
habitat suitable for Sidalcea oregana var. calva by increasing 
competition for light, nutrients, and/or water. A significant increase 
in vegetative growth due to fire suppression outside of the immediate 
habitat for S. oregana var. calva may also adversely affect habitat 
suitability for the species by reducing the surface-runoff within the 
small watersheds where it occurs.
    Other current threats at Mountain Home Meadow, where the second 
largest known population of Sidalcea oregana var. calva occurs, include 
alteration of hydrology due to road construction, timber harvesting 
activities, and inadvertent trampling of the small population by guests 
at a

[[Page 41331]]

nearby resort lodge. The hydrology of the site may be altered by the 
main access road that borders the population on the west. Timber on the 
ridge immediately west of the main access road was harvested in 1987. 
This timber was within 50 m (164 ft) of the population and harvest 
temporarily modified the hydrology by increasing water flow from the 
hillside directly into the plant's habitat. Timber was harvested from 
the ridge directly above and east of Mountain Home Meadow during the 
summer of 1995 (R. Harrod, pers. comm. 1996). Construction activities 
and facilities maintenance at the lodge may also alter the site 
hydrology and adversely impact the S. oregana var. calva population at 
this location (Gamon 1987; T. Thomas, pers. obs. 1995).

B. Overutilization for commercial, recreational, scientific, or 
educational purposes

    No evidence of over-collection of Sidalcea oregana var. calva by 
botanists and/or horticulturists for scientific and commercial purposes 
is known at this time. However, some populations are small enough that 
even limited collecting pressure could have adverse impacts. Sidalcea 
oregana var. calva is an attractive plant, and may be sought for 
collection if its rarity and population locations become well known. 
All perennial species in the genus are considered attractive, if not 
choice, plants with horticultural potential (Hitchcock and Cronquist 
1961, Gamon 1987, Hill 1993). Wild-collected seed of the species, S. 
oregana (no variety given), is available through a seed exchange 
program offered by an international gardening society (North American 
Rock Garden Society (NARGS) 1996). Livestock, especially sheep, have 
grazed the Camas Land meadow complex, and the southeast portion of the 
meadow is currently grazed by horses. Whether herbivory by livestock or 
wildlife has adversely impacted the S. oregana var. calva population is 
unknown, as is the potential threat herbivory may currently pose.

C. Disease or Predation

    Individuals of Sidalcea oregana var. calva have been infested by 
large numbers of aphids at the Camas Land and Mountain Home Meadow 
populations (Gamon 1987). The effect of these aphids, or the 
relationship of the aphids to Sidalcea oregana var. calva, is not 
known. In 1987, weevils were observed to have eaten the majority of the 
seeds that were produced (Gamon 1987); herbivory has also been observed 
more recently (R. Harrod, pers. comm. 1996). Some grazing by horses and 
wildlife (deer and elk) has been observed, although the impact from 
grazing is unknown (Gamon 1987; R. Harrod, pers. comm. 1996).

D. The Inadequacy of Existing Regulatory Mechanisms

    Sidalcea oregana var. calva is included on the Forest Service 
Region 6 Sensitive Plant List and is listed as endangered by the DNR's 
Natural Heritage Program (1994). There is no State Endangered Species 
Act in the State of Washington and, therefore, the DNR designation 
provides no legal protection for this species.
    The Wenatchee National Forest has developed a draft conservation 
agreement for another sensitive plant species, Delphinium viridescens, 
which would indirectly provide some measures for conserving Sidalcea 
oregana var. calva where the two taxa occur together. Some protection 
mechanisms discussed in the draft agreement have been implemented and 
may serve to promote the recovery of S. oregana var. calva on Forest 
Service land. However, this agreement has not been finalized, does not 
address all of the threats to S. oregana var. calva, and is inadequate 
to protect and recover the species throughout its range (Gamon 1987; J. 
Gamon, pers. comm. 1996). Protection provided through this conservation 
agreement would not extend to private or state-owned land, nor would it 
protect the species from alteration of hydrology, residential 
development and associated impacts, competition from non-native plants, 
fire and/or fire suppression activities, insect outbreaks, and random 
events.

E. Other Natural or Manmade Factors Affecting Its Continued Existence

     Fewer than five individuals are present at each of two sites on 
Forest Service land, and fewer than 30 individuals are present at one 
of the sites on private land. When populations reach such low numbers, 
their susceptibility to extirpation from deterministic and random 
events increases (Gilpin and Soule 1986, Given 1994, Schemske et al. 
1994). An outbreak of insects, soil disturbance from livestock grazing, 
or a fire during the growing season of S. oregana var. calva could 
extirpate these small populations or reduce the habitat suitability for 
this taxon. The small, isolated nature of these populations may also 
have an adverse effect on pollinator activity, seed dispersal, and gene 
flow. Small populations may lose a large amount of genetic variability 
because of genetic drift and therefore have a reduced likelihood of 
long-term viability (Soule 1980 as cited in Lesica and Allendorf 1992). 
The Mountain Home Meadow population has fewer than 100 plants and is 
also susceptible to many of these same threats. An additional threat to 
the Mountain Home Meadow population is dust from an adjacent gravel 
road which may hinder pollination of the plants nearest the road (Gamon 
1987).
    The Service has carefully assessed the best scientific and 
commercial information available concerning the past, present, and 
future threats faced by this species in determining to propose this 
rule. Based on this evaluation, the preferred course of action is to 
list Sidalcea oregana var. calva as endangered. Alterations of 
hydrology, development of property for residential and agricultural 
use, habitat modification and/or destruction from fire suppression and 
fire-suppression activities, competition with native and non-native 
plant species, road construction and maintenance, and impacts from 
recreational activities imperil the continued existence of this 
species. The small populations of this species are particularly 
susceptible to extirpation from random events. Sidalcea oregana var. 
calva is known from only five populations. Two of these populations 
have fewer than five individuals each, while one population has fewer 
than 30 individuals. Another population has about 100 individuals 
remaining after being reduced 50 percent by fire suppression 
activities. The largest population has about 2,470 individuals. Because 
the taxon has been extirpated from numerous historical locations and is 
in danger of extinction, the preferred action is to list S. oregana 
var. calva as endangered. Other alternatives to this action were 
considered but not preferred; not listing the taxon or listing it as 
threatened would not be in accordance with the Act.

Critical Habitat

    Critical habitat is defined in section 3 of the Act as: (i) the 
specific areas within the geographical area occupied by a species, at 
the time it is listed in accordance with the Act, on which are found 
those physical or biological features (I) essential to the conservation 
of the species and (II) that may require special management 
consideration or protection and; (ii) specific areas outside the 
geographical area occupied by a species at the time it is listed, upon 
a determination that such areas are essential for the conservation of 
the species. ``Conservation'' means the use

[[Page 41332]]

of all methods and procedures needed to bring the species to the point 
at which listing under the Act is no longer necessary.
    Section 4(a)(3) of the Act, as amended, and implementing 
regulations (50 CFR 424.12) require that, to the maximum extent prudent 
and determinable, the Secretary designate critical habitat at the time 
the species is determined to be endangered or threatened. The Service 
finds that designation of critical habitat is not prudent for S. 
oregana var. calva at this time. Service regulations (50 CFR 
424.12(a)(1)) state that designation of critical habitat is not prudent 
when one or both of the following situations exist--(1) The species is 
threatened by taking or other human activity, and identification of 
critical habitat can be expected to increase the degree of threat to 
the species, or (2) such designation of critical habitat would not be 
beneficial to the species.
    As discussed under Factor B in the ``Summary of Factors Affecting 
the Species'' section, overutilization is not considered to be a threat 
to the Sidalcea oregana var. calva at this time. Almost all of the 
perennial taxa in the genus, however, are considered attractive, if not 
choice, plants of horticultural value when in bloom (Hitchcock and 
Cronquist 1961, Gamon 1987, Hill 1993). Although overutilization of S. 
oregana var. calva is not currently thought to be a threat, wild-
collected seed of the species (no variety given) is available through 
the seed exchange program of an international gardening society (NARGS 
1996). Some populations are small enough that even limited collecting 
pressure could have adverse impacts. The publication of precise maps 
and descriptions of critical habitat in the Federal Register would make 
these plants more vulnerable to incidents of collection and/or 
vandalism and, therefore, could contribute to the decline of this 
species and increase enforcement difficulties. The listing of this 
species as endangered would publicize its rarity which could make these 
plants more attractive to researchers or collectors of rare plants.
    Furthermore, critical habitat designation for Sidalcea oregana var. 
calva is not prudent due to lack of benefit. Only two populations occur 
on Federal land, each with fewer than five individuals, and any action 
that would adversely modify critical habitat also would jeopardize the 
species. The designation of currently unoccupied habitat as critical 
habitat for this species is unlikely because historical sites at which 
the species is no longer found have either been converted to 
residential or agricultural uses, or the habitat at these sites has 
been altered to such an extent that conditions are no longer suitable 
for the species. Service policy precludes the introduction of the 
species into areas where it did not historically occur. The designation 
of critical habitat, therefore, would not provide additional benefit 
for this species beyond the protection afforded by listing.
    Protection of the habitat of this species will be addressed through 
the recovery process and through sections 6 and 7 of the Act. The 
Service believes that Federal involvement in the areas where these 
plants occur can be identified without the designation of critical 
habitat. Because the publication of precise maps and descriptions of 
critical habitat in the Federal Register would make these plants more 
vulnerable to incidents of collection and/or vandalism and because of 
lack of benefit, the Service finds that the designation of critical 
habitat for these plants is not prudent at this time.

Available Conservation Measures

    Conservation measures provided to species listed as endangered or 
threatened under the Endangered Species Act include recognition, 
recovery actions, requirements for Federal protection, and prohibitions 
against certain activities. Recognition through listing encourages and 
results in public awareness and conservation actions by Federal, State, 
and local agencies, private organizations, and individuals. The Act 
provides for possible land acquisition and cooperation with the States 
and requires that recovery actions be carried out for all listed 
species.
    Section 7(a) of the Act, as amended, requires Federal agencies to 
evaluate their actions with respect to any species that is proposed or 
listed as endangered or threatened and with respect to its critical 
habitat, if any is being designated. Regulations implementing this 
interagency cooperation provision of the Act are codified at 50 CFR 
part 402. Section 7(a)(4) of the Act requires Federal agencies to 
confer with the Service on any action that is likely to jeopardize the 
continued existence of a species proposed for listing, or result in 
destruction or adverse modification of proposed critical habitat. If a 
species is listed subsequently, section 7(a)(2) requires Federal 
agencies to ensure that activities they authorize, fund or carry out 
are not likely to jeopardize the continued existence of such a species 
or destroy or adversely modify its critical habitat. If a Federal 
action may affect a listed species or its critical habitat, the Federal 
agency must enter into formal consultation with the Service, pursuant 
to Section 7(a)(2) of the Act.
    Two of five populations of Sidalcea oregana var. calva are found 
entirely on Federal lands managed by the Forest Service, while a third 
population may lie partially on Forest Service land. The Forest Service 
would be required to consult with the Service if any actions such as 
timber harvesting, road construction, or grazing activities may affect 
S. oregana var. calva. Other Federal agency actions that may require 
conference and/or consultation include Army Corps of Engineers 
authorization of projects affecting wetlands and other waters under 
section 404 of the Clean Water Act (33 U.S.C. 1344 et seq.), 
Environmental Protection Agency authorization of discharges under the 
National Pollutant Discharge Elimination System (NPDES), Natural 
Resource Conservation Service projects, and Department of Housing and 
Urban Development and Veterans Administration mortgage programs 
(Federal Home Administration loans).
    Listing of this plant would provide for development of a recovery 
plan for the plant. Such a plan would identify both State and Federal 
efforts for conservation of the plant and establish a framework for 
agencies to coordinate activities and cooperate with each other in 
conservation efforts. The plan would set recovery priorities and 
describe site-specific management actions necessary to achieve 
conservation and survival of the plant. Additionally, pursuant to 
section 6 of the Act, the Service would be able to grant funds to 
affected states for management actions promoting the protection and 
recovery of this species.
    The Act and its implementing regulations set forth a series of 
general prohibitions and exceptions that apply to all endangered 
plants. All prohibitions of section 9(a)(2) of the Act, implemented by 
50 CFR 17.61 for endangered plants apply. These prohibitions, in part, 
make it illegal for any person subject to the jurisdiction of the 
United States to import or export, transport in interstate or foreign 
commerce in the course of a commercial activity, sell or offer for sale 
in interstate or foreign commerce, or remove the species from areas 
under Federal jurisdiction. In addition, for plants listed as 
endangered, the Act prohibits the malicious damage or destruction on 
areas under Federal jurisdiction and the removal, cutting, digging up, 
damaging, or destroying of such plants in knowing violation of any 
State law or regulation, including State criminal trespass law. Certain 
exceptions to the prohibitions

[[Page 41333]]

apply to agents of the Service and State conservation agencies.
    It is the policy of the Service (59 FR 34272) to identify to the 
maximum extent practicable at the time a species is listed those 
activities that would or would not constitute a violation of section 9 
of the Act. The intent of this policy is to increase public awareness 
of the effect of the listing on proposed and ongoing activities within 
a species' range. Collection, damage, or destruction of these species 
on Federal lands is prohibited, although in appropriate cases a Federal 
endangered species permit may be issued for scientific or recovery 
purposes. Such activities on non-Federal land would constitute a 
violation of section 9 if conducted in knowing violation of Washington 
State law or regulations or in violation of State criminal trespass 
law.
    Activities that are in areas not under Federal jurisdiction, that 
are in compliance with Washington State law, and that are in no way 
related to a commercial activity involving these plants are not likely 
to be violations of section 9. Questions regarding whether specific 
activities will constitute a violation of section 9 should be directed 
to the Field Supervisor of the Western Washington Office (see ADDRESSES 
section).
    The Act and 50 CFR 17.62 and 17.63 also provide for the issuance of 
permits to carry out otherwise prohibited activities involving 
endangered plants under certain circumstances. Such permits are 
available for scientific purposes and to enhance the propagation or 
survival of the species. Requests for copies of the regulations 
regarding listed species and inquiries about prohibitions and permits 
may be addressed to the U.S. Fish and Wildlife Service, Ecological 
Services, Permits Branch, 911 N.E. 11th Avenue, Portland, Oregon 97232-
4181 (telephone 503/231-6241; facsimile 503/231-6243).

Public Comments Solicited

    The Service intends that any final action resulting from this 
proposal will be as accurate and as effective as possible. Therefore, 
comments or suggestions from the public, other concerned governmental 
agencies, the scientific community, industry, or any other interested 
party concerning this proposed rule are solicited. Comments 
particularly are sought concerning:
    (1) Biological, commercial trade, or other relevant data concerning 
any threat (or lack thereof) to this species;
    (2) The location of any additional populations of this species and 
the reasons why any habitat should or should not be determined to be 
critical habitat pursuant to section 4 of the Act;
    (3) Additional information concerning the range, distribution, and 
population size of this species; and
    (4) Current or planned activities in the subject area and their 
possible impacts on this species.
    Any final decision on this proposal will take into consideration 
the comments and any additional information received by the Service, 
and such communications may lead to a final regulation that differs 
from this proposal.
    The Endangered Species Act provides for a public hearing on this 
proposal, if requested. Requests must be received within 45 days of the 
date of publication of this proposal in the Federal Register. Such 
requests must be made in writing and be addressed to the Supervisor, 
Western Washington Office (see ADDRESSES section).

National Environmental Policy Act

    The Fish and Wildlife Service has determined that Environmental 
Assessments and Environmental Impact Statements, as defined under the 
authority of the National Environmental Policy Act of 1969, need not be 
prepared in connection with regulations adopted pursuant to section 
4(a) of the Endangered Species Act of 1973, as amended. A notice 
outlining the Service's reasons for this determination was published in 
the Federal Register on October 25, 1983 (48 FR 49244).

Required Determinations

    The Service has examined this regulation under the Paperwork 
Reduction Act of 1995 and found it to contain no information collection 
requirements.

References Cited

    A complete list of all references cited herein is available upon 
request from the Western Washington Office (see ADDRESSES section).
    Authors: The primary author of this proposed rule is Ted Thomas, 
Western Washington Office of the North Pacific Coast Ecoregion (see 
ADDRESSES section).

List of subjects in 50 CFR Part 17

    Endangered and threatened species, Exports, Imports, Reporting and 
recordkeeping requirements, Transportation.

Proposed Regulation Promulgation

    Accordingly, the Service hereby proposes to amend part 17, 
subchapter B of chapter I, title 50 of the Code of Federal Regulations, 
as set forth below:

PART 17--[AMENDED]

    1. The authority citation for part 17 continues to read as follows:

    Authority: 16 U.S.C. 1361-1407; 16 U.S.C. 1531-1544; 16 U.S.C. 
4201-4245; Pub. L. 99-625, 100 Stat. 3500, unless otherwise noted.

    2. Section 17.12(h) is amended by adding the following, in 
alphabetical order under Flowering Plants, to the list of Endangered 
and Threatened plants:


Sec. 17.12  Endangered and threatened plants

* * * * *
    (h) * * *

--------------------------------------------------------------------------------------------------------------------------------------------------------
                        Species                                                                                                                         
--------------------------------------------------------    Historic range           Family            Status      When listed    Critical     Special  
         Scientific name                Common name                                                                               habitat       rules   
--------------------------------------------------------------------------------------------------------------------------------------------------------
Flowering Plants.................                                                                                                                       
                                                                                                                                                        
                   *                  *                  *                  *                  *                  *                  *                  
Sidalcea oregana var. calva......  Wenatchee Mountains   U.S.A. (WA)........  Malvaceae..........  E               ...........           NA           NA
                                    checker-mallow.                                                                                                     
                                                                                                                                                        
                   *                  *                  *                  *                  *                  *                  *                  
--------------------------------------------------------------------------------------------------------------------------------------------------------


    Dated: July 7, 1997
John G. Rogers
Acting Director, Fish and Wildlife Service
[FR Doc. 97-20368 Filed 7-31-97; 8:45 am]
BILLING CODE 4310-55-P