Thursday, January 14, 2010

Part III

Department of the Interior Fish and Wildlife Service

50 CFR Part 17 Endangered and Threatened Wildlife and Plants; Revised Designation of Critical Habitat for Bull Trout in the Coterminous United States; Proposed Rule

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DEPARTMENT OF THE INTERIOR Public Hearing: We will hold a public 378-5243; facsimile 208-378-5262. If you hearing in Boise, Idaho on February 25, use a telecommunications device for the Fish and Wildlife Service 2010, from 7 p.m. to 9 p.m.; and public deaf (TDD), call the Federal Information meetings in: Relay Service (FIRS) at 800-877-8339. 50 CFR Part 17 • Bend, Oregon on February 2, 2010, SUPPLEMENTARY INFORMATION: 5:30 p.m. to 7:30 p.m.; [Docket No. FWS-R1-ES-2009-0085] • [[MO 92210-0-0009] Chiloquin, Oregon on February 3, Public Comments 2010, 6 p.m. to 8 p.m.; We intend that any final action [RIN 1018-AW88] • LaGrande, Oregon on February 4, resulting from this proposed rule will be 2010, 5:30 p.m. to 7:30 p.m.; Endangered and Threatened Wildlife based on the best scientific and • Post Falls, Idaho on February 11, and Plants; Revised Designation of commercial data available and be as 2010, 4 p.m. to 7 p.m.; Critical Habitat for Bull Trout in the accurate and as effective as possible. • Missoula, Montana on February 16, Coterminous United States Therefore, we request comments or 2010, 3 p.m. to 8 p.m.; information from the public, other • Elko, Nevada on February 17, 2010, AGENCY: Fish and Wildlife Service, concerned government agencies, the 5 p.m. to 7 p.m.; Interior. scientific community, industry, or other • Wenatchee, Washington on February ACTION: Proposed rule, announcement of interested parties concerning this 23, 2010, 6 p.m. to 8 p.m.; and public hearing, and announcement of proposed rule. Verbal testimony or • Boise, Idaho on February 25, 2010, 4 availability of draft economic analysis. written comments may also be p.m. to 6 p.m. presented during the public hearing (see SUMMARY: We, the U.S. Fish and ADDRESSES: You may submit comments the Public Hearing section below for Wildlife Service (Service), propose to by one of the following methods: • more information). We will consider revise the designation of critical habitat Federal eRulemaking Portal: http:// information and recommendations from for the bull trout (Salvelinus www.regulations.gov. Search for docket all interested parties. We particularly confluentus) under the Endangered FWS-R1-ES-2009-0085 and then follow seek comments concerning: Species Act of 1973, as amended. In the instructions for submitting (1) The reasons why we should or total, approximately 36,498 kilometers comments. should not designate habitat as ‘‘critical • (km) (22,679 miles (mi)) of streams U.S. mail or hand-delivery: Public habitat’’ under section 4 of the (which includes 1,585.7 km (985.30 mi) Comments Processing, Attn: FWS-R1- Endangered Species Act of 1973, as of marine shoreline area in the Olympic ES-2009-0085; Division of Policy and amended (Act) (16 U.S.C. 1531 et seq.), Peninsula and Puget Sound), and Directives Management; U.S. Fish and including whether there are threats to 215,870 hectares (ha) (533,426 acres Wildlife Service; 4401 N. Fairfax Drive, the species from human activity, the (ac)) of reservoirs or lakes are being Suite 222; Arlington, VA 22203. • degree to which threats can be expected proposed for the revised critical habitat Public Hearing: We will hold the to increase due to the designation, and designation. The revised proposed public hearing at Boise Centre on the whether that increase in threat critical habitat is located in Adams, Grove, 850 W. Front Street, Boise, outweighs the benefit of designation; Benewah, Blaine, Boise, Bonner, Idaho. (2) Specific information on: • Boundary, Butte, Camas, Canyon, Public Meetings: We will hold the • The amount and distribution of bull Clearwater, Custer, Elmore, Gem, Idaho, public meetings at: trout habitat, Kootenai, Lemhi, Lewis, Nez Perce, o Hollingshead Barn, 1235 NE Jones • What areas occupied at the time of Owyhee, Shoshone, Valley, and Road, Bend Oregon; listing that contain features essential to Washington counties in Idaho; Deer o Chiloquin Community Center, 140 the conservation of the species should Lodge, Flathead, Glacier, Granite, Lake, S. 1st Street, Chiloquin, Oregon; be included in the designation and why, Lewis and Clark, Lincoln, Mineral, o Blue Mountain Conference Center, • Special management considerations Missoula, Powell, Ravalli, and Sanders 404 12th Street, la Grande, Oregon; or protections that the features essential counties in Montana; Baker, Clatsop, o Red Lion Templins Inn, 414 East 1st to the conservation of the bull trout that Columbia, Deschutes, Gilliam, Grant, Avenue, Post Falls, Idaho; have been identified in this proposal Harney, Hood River, Jefferson, Klamath, o Montana Fish, Wildlife, and Parks may require, including managing for the Lake, Lane, Linn, Malheur, Morrow, Headquarters, 3201 Spurgin Road, potential effects of climate change, and Multnomah, Sherman, Umatilla, Union, Missoula, Montana; • What areas not occupied at the time Wallowa, Wasco, and Wheeler counties o Elko Convention Center, Gold Room, of listing are essential to the in Oregon; Asotin, Benton, Chelan, 700 Moren Way, Elko, Nevada; conservation of the species and why; Clallam, Clark, Columbia, Cowlitz, o Wenatchee-Okanogan National (3) Land use designations and current Douglas, Franklin, Garfield, Grant, Forest Headquarters, 215 Melody Lane, or planned activities in the areas Grays Harbor, Island, Jefferson, King, Wenatchee, Washington; and occupied by the species, and their Kittitas, Klickitat, Mason, Okanogan, o Boise Centre on the Grove, 850 W. possible impacts on proposed critical Pend Oreille, Pierce, Skagit, Skamania, Front Street, Boise, Idaho. habitat; Snohomish, Thurston, Wahkiakum, We will post all comments on http:// (4) Any foreseeable economic, Walla Walla, Whatcom, Whitman, and www.regulations.gov. This generally national security, or other relevant Yakima counties in Washington; and means that we will post any personal impacts of designating any area that Elko county, Nevada. information you provide us (see the may be included in the final DATES: Written Comments: We will Public Comments section below for designation. We are particularly accept comments received or more information). interested in any impacts on small postmarked on or before March 15, FOR FURTHER INFORMATION CONTACT: Jeff entities, and the benefits of including or 2010. Because of the anticipated interest Foss, Field Supervisor, U.S. Fish and excluding areas that exhibit these in this proposed designation, we are Wildlife Service, Idaho Fish and impacts; planning on holding a public hearing Wildlife Office, 1387 South Vinnell (5) Whether the benefits of excluding and several public meetings. Way, Boise, ID 83702; telephone 208- any particular area from critical habitat

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outweigh the benefits of including that (8) Specific information on areas of (14) We have organized the Primary area as critical habitat under section habitat that were historically occupied, Constituent Elements (PCEs) of bull 4(b)(2) of the Act, after considering the or areas for which we have limited trout critical habitat based on the life- potential impacts and benefits of the evidence of occupancy, which we do history needs of the species. We are proposed critical habitat designation. not consider to be essential to the considering reorganizing the PCEs in Under section 4(b)(2) of the Act, we may conservation of the species in this order to improve clarity, into broad exclude an area from critical habitat if proposed rule. These areas include habitat attributes (water bodies and we determine that the benefits of such Okanogan River; Lake Chelan and migratory corridors), and identify exclusion outweigh the benefits of Stehekin River; west side tributaries to specific needs of bull trout within these including that particular area as critical Hood Canal (e.g., Dosewallips River, broad categories. This approach would habitat, unless failure to designate that Duckabush River, Quilcene River); and likely require repetition of specific specific area as critical habitat will Willapa River; features, but may be more result in the extinction of the species. (9) Specific information on areas understandable by making clear the We request specific information on: believed to be unoccupied in the relationships between the needs of the • The benefits of including specific Klamath River basin, but essential for species and the specific locations where areas in the final designation and FMO habitat; those needs are provided. We request supporting rationale, (10) Specific information as to comments on whether this • The benefits of excluding specific whether the six recovery units reorganization would improve clarity of areas from the final designation and identified in the ‘‘Critical Habitat the PCEs. supporting rationale, and Background’’ section accurately reflect (15) Whether we could improve or • Whether any specific exclusions the conservation needs of bull trout; modify our approach to designating may result in the extinction of the (11) Information on the projected and critical habitat in any way to provide for species and why (see Exclusions section reasonably likely impacts of climate greater public participation and below). change on bull trout, and any special understanding, or to better (6) Whether our exemptions under management needs or protections that accommodate public concerns and section 4(a)(3)(B) of the Act of the lands may be needed in the critical habitat comments; and (16) Specific information on ways to on Department of Defense (DOD) land at areas we are proposing. improve the clarity of this rule as it the Bayview Acoustic Research (12) Information on the extent to pertains to completion of consultations Detachment (ARD) Naval Surface which the description of potential under section 7 of the Endangered Warfare Center, Bayview Idaho; Naval economic impacts in the DEA is Species Act. Radio Station Jim Creek in western complete and accurate, and specifically: • You may submit your comments and Washington; Naval Station Everett in Whether regulatory protections and materials concerning this proposed rule western Washington; Naval Air Station conservation activities already being by one of the methods listed in the Whidbey Island in western Washington, implemented for salmon, steelhead, bull ADDRESSES section. and U.S. Army Fort Lewis Installation trout , other species, or other concerns We will post your entire comment— in western Washington, are or are not (e.g., water quality) in areas proposed as including your personal identifying appropriate, and why; critical habitat are appropriate to information—on http:// (7) Specific information on the include as baseline costs (e.g., costs that www.regulations.gov. If you provide following areas considered to be would occur regardless of critical personal identifying information, in essential to the conservation of the habitat designation for bull trout) for addition to the required items specified species: purposes of our economic analysis, and in the previous paragraphs, such as your • Mainstem and tributary habitats if not, why not; street address, phone number, or e-mail within the White Salmon River Critical • Whether there are incremental costs address, you may request at the top of Habitat Subunit (CHSU) that are of critical habitat designation (e.g., costs your document that we withhold this believed to be unoccupied, but which attributable solely to critical habiatat information from public review. are considered essential for providing designation) that have not been However, we cannot guarantee that we foraging, migration, and overwintering appropriately identified or considered will be able to do so. (FMO) habitat or spawning and rearing in our economic analysis, including Comments and materials we receive, areas to reestablish a population within costs associated with future as well as supporting documentation we this system; administrative costs or project used in preparing this proposed rule, • Unoccupied tributaries within the modifications that may be required by will be available for public inspection Lake Pend Oreille, Pend Oreille River, Federal agencies related to section 7 on http://www.regulations.gov, or by and lower Priest River CHSU that are consultation under the Act; appointment, during normal business considered essential for providing • Whether there are incremental hours, at the U.S. Fish and Wildlife spawning and rearing areas to economic benefits of critical habitat Service, Idaho Fish and Wildlife Office reestablish a population within the designation that have not been (see FOR FURTHER INFORMATION CONTACT). Pend Oreille River; and appropriately identified or considered We are holding a public hearing on • Areas of mainstem habitat in the in our economic analysis. the date listed in the DATES section at Yakima River (Yakima River Critical (13) Information on whether existing the address listed in the ADDRESSES Habitat Unit (CHU)) and Touchet River special management considerations or section. We are holding this public (Walla Walla River Basin CHU) for protections being implemented in areas hearing to provide interested parties an which we have limited or no designated as critical habitat for salmon opportunity to present verbal testimony documented evidence of occupancy, but by the National Marine Fisheries (formal, oral comments) or written which are currently believed to be Service (NOAA Fisheries) are adequate comments regarding the proposed essential for providing connectivity to for conserving essential bull trout critical habitat designation and the the mainstem Columbia River and Walla habitat where proposed bull trout associated Draft Economic Analysis. An Walla River, respectively, for the fluvial critical habitat overlaps, and if not, why informational session will precede the life-history form; not. hearing from 4 p.m. to 6 p.m. During

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this session, Service biologists will be distribution of populations, however, is bull trout throughout the conterminous available to provide information and scattered and patchy (Goetz 1989, p. 4; United States. After consulting with address questions on the proposed rule Ziller 1992, p. 6; Rieman and McIntyre biologists from states, Federal agencies, in advance of the formal hearing. 1993, p. 3; Light et al. 1996, p. 44; and Native American tribes, and People needing reasonable Quigley and Arbelbide 1997, p. 1176). applying the best scientific information accommodations in order to attend and Bull trout exhibit a number of life- available, we identified six recovery participate in the public hearings history strategies. Stream-resident bull units for bull trout in the conterminous should contact Jeff Foss, Idaho Fish and trout complete their entire life cycle in United States. Please refer to the Wildlife Office, at 208-378-5243 as soon the tributary streams where they spawn ‘‘Critical Habitat’’ section below for as possible (see FOR FURTHER and rear. Most bull trout are migratory, additional information on this topic. INFORMATION CONTACT section). In order spawning in tributary streams where Previous Federal Actions to allow sufficient time to process juvenile fish usually rear from one to requests, please call no later than one four years before migrating to either a On November 29, 2002, we proposed week before the hearing date. larger river (fluvial) or lake (adfluvial) to designate critical habitat for the We are also holding public meetings where they spend their adult life, Klamath River and Columbia River bull on the dates listed in the DATES section returning to the tributary stream to trout populations (67 FR 71235). On at the addresses listed in the ADDRESSES spawn (Fraley and Shepard 1989, p. October 6, 2004, we finalized the critical section. During the public meetings, 133). Resident and migratory forms may habitat designation for the Klamath Service biologists will be available to be found together, and either form can River and Columbia River bull trout provide information and address produce resident or migratory offspring populations (69 FR 59995). On June 25, questions on the proposed rule. (Rieman and McIntyre 1993, p. 2). 2004, we proposed to designate critical However, we will not accept verbal Bull trout, coastal cutthroat trout habitat for the Jarbidge, Coastal–Puget testimony at these public meetings. (Oncorhynchus clarki clarki), Pacific Sound, and Saint Mary–Belly River bull Information regarding this notice is salmon (Oncorhynchus spp.), and some trout populations (69 FR 35767). On available in alternative formats upon other species are commonly referred to September 26, 2005, we designated request. as anadromous (fish that can migrate critical habitat for the Klamath River, from saltwater to freshwater to Columbia River, Jarbidge River, Coastal– Background reproduce). However, bull trout, coastal Puget Sound, and Saint Mary–Belly It is our intent to discuss only those cutthroat trout, and some other species River populations of bull trout (70 FR topics directly relevant to the that enter the marine environment are 56212). Please refer to the above- designation of critical habitat in this more properly termed amphidromous. mentioned rules for a detailed summary proposed rule. For further information Unlike strictly anadromous species, of previous Federal actions completed on the bull trout biology and habitat, such as Pacific salmon, amphidromous prior to publication of this proposed population abundance and trend, species often return seasonally to fresh rule. distribution, demographic features, water as subadults, sometimes for On January 5, 2006, a complaint was habitat use and conditions, threats, and several years, before returning to spawn filed in Federal district court by the conservation measures, please see the (Wilson 1997, p. 5). The amphidromous Alliance for the Wild Rockies, Inc. and Bull Trout 5-year Review Summary and life-history form of bull trout is unique Friends of the Wild Swan, alleging the Evaluation, completed April 25, 2008. to the Coastal–Puget Sound population Service failed to designate adequate This document is available on the Idaho (64 FR 58921; November 1, 1999). For critical habitat, failed to rely on the best Fish and Wildlife Office web site at additional information on the biology of scientific and commercial data http://ecos.fws.gov/docs/ this life form, see our June 25, 2004, available, failed to consider the relevant five_year_review/doc1907.pdf. proposed critical habitat designation for factors that led to listing, and failed to the Jarbidge River, Coastal–Puget properly assess the economic benefits Description, Distribution, Habitat and Sound, and Saint Mary–Belly River and costs of critical habitat designation. Recovery populations of bull trout (69 FR 35767). Other allegations included an Bull trout have more specific habitat The decline of bull trout is primarily inadequate analysis and the unlawful requirements than most other salmonids due to habitat degradation and use of exclusions. On March 23, 2009, (Rieman and McIntyre 1993, p. 4). fragmentation, blockage of migratory the Service provided notice to the U.S. Habitat components that particularly corridors, poor water quality, past District Court for the District of Oregon influence their distribution and fisheries management practices, that we would seek remand of the final abundance include water temperature, impoundments, dams, water diversions, critical habitat rule for bull trout based cover, channel form and stability, and the introduction of nonnative on the findings of an Investigative spawning and rearing substrate species (63 FR 31647; June 10, 1998; 64 Report by the Department of the Interior conditions, and migratory corridors FR 17112; April 8, 1999). Finalization of Inspector General (USDI 2008, pp. 10– (Fraley and Shepard 1989, p. 138; Goetz the 2002 draft recovery plan was held in 38). On July 1, 2009, the court granted 1989, p. 19; Watson and Hillman 1997, abeyance pending completion of the 5– our request for a voluntary remand of p. 247). This proposed rule identifies year review process, and was also the 2005 final rule and directed the those physical and biological features affected by resource demands associated Service to submit a new proposed rule essential to bull trout conservation. with the litigation discussed below. The to the Federal Register by December 31, Bull trout are members of the char bull trout 5–year review (Service 2008, 2009, and to submit a final decision on subgroup of the family Salmonidae and p. 45) recommended that the recovery that proposed rule to the Federal are native to waters of western North units identified in the 2002 draft Register by September 30, 2010 America. Bull trout range throughout recovery plan be updated throughout (Alliance for the Wild Rockies v. Allen, the Columbia River and Snake River their range based on assemblages of bull 2009 U.S. Dist. LEXIS 63122 (D. Or., basins, extending east to headwater trout core areas (metapopulations or July 1, 2009)). The court directed that streams in Montana and Idaho, into interacting breeding populations) that the existing critical habitat rule shall Canada, and in the Klamath River basin retain genetic and ecological integrity remain in effect until completion of the of south-central Oregon. The and are significant to the distribution of remanded decision.

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Summary of Changes from Previously November 29, 2002, proposed and refined information on the Designated Critical Habitat designation for the Klamath River and importance of certain habitats, we are Approximately 36,498 km (22,679 mi) Columbia River bull trout populations proposing to designate 3 percent more of streams (which includes 1,585.7 km (67 FR 71235) and the June 25, 2004, critical habitat in streams (measured on (985.3 mi) of marine shoreline area, and proposed designation for the Jarbidge, a linear basis) and 10 percent less 215,870 ha (533,426 ac) of reservoirs or Coastal–Puget Sound, and Saint Mary– critical habitat in lakes and reservoirs lakes) are being proposed as revised Belly River bull trout populations (69 (measured by area) than were proposed critical habitat in this rule. Areas that FR 35767) are identified in Table 1 in the combined 2002 and 2004 were proposed as critical habitat in the below. Based on better occupancy data proposed rules.

TABLE 1.—EXTENT OF PROPOSED BULL TROUT CRITICAL HABITAT IN THE COMBINED 2002 AND 2004 PROPOSED RULES (67 FR 71235; 69 FR 35767)

Stream length Lakes, Reservoirs and Marshes Marine shoreline Bull Trout States Population km mi ha ac km mi

Klamath DPS...... 476 296 13,735 33,939 ...... OR Columbia River DPS (CDPS) ...... 14,416 8,958 83,219 205,639 ...... ID CDPS ...... 5,341 3,319 88,051 217,577 ...... MT CDPS ...... 5,460 3,391 18,077 44,670 ...... OR CDPS ...... 4,034 2,507 12,503 30,897 ...... WA Jarbidge ...... 211 131 ...... ID/NV Coastal–Puget Sound ...... 3,685 2,290 21,262 52,540 1,585 985 WA St. Mary–Belly...... 142 88 2,548 6,295 ...... MT

Total ...... 33,765 20,980 239,395 591,577 1,585 985

This proposed rule differs from the critical habitat under section 4(b)(2) of conservation actions for the species. September 26, 2005, final critical habitat the Act (70 FR 56232). These areas Therefore, in this proposed rule, we are designation for bull trout (70 FR 56212) included several DOD facilities; certain asking for specific information regarding in the following ways: Tribal lands; Nisqually National whether the effects of these actions are In the 2005 final rule, we designated Wildlife Refuge lands; lands subject to such that the benefits of excluding these approximately 6,161 km (3,828 mi) of Habitat Conservation Plans (HCPs); particular areas from critical habitat streams and 57,9578 ha (143,218 ac) of lands subject to Federal or State outweigh the benefits of including these lakes in Idaho, Montana, Oregon, and management plans (including PACFISH, area as critical habitat under section Washington; and 1,585 km (985 mi) of INFISH, Interior Columbia Basin 4(b)(2) of the Act (see ‘‘Application of shoreline paralleling marine habitat in Ecosystem Management Project, Section 4(b)(2) of the Act’’ below). Washington as critical habitat (70 FR Northwest Forest Plan, Southwest Idaho In addition, we are exempting several 56212). No critical habitat was Land and Resource Management Plan, DOD facilities under section 4(a)(3) of designated in the Jarbidge River basin Southeast Oregon Resource the Act based on existing Integrated (70 FR 56249–56251). In this rule, we Management Plan, Federal Columbia Natural Resource Management Plans are proposing to designate 36,498 km River Power System, Snake River Basin that provide a benefit to bull trout, and (22,679 mi) of streams (which includes Adjudication); waters impounded we are considering excluding certain 1,585.7 km (985.3 mi) of marine behind dams; and all lands that were non-Federal lands under section 4(b)(2) shoreline area in the Olympic Peninsula proposed as critical habitat in the of the Act based on other conservation and Puget Sound), and 215,870 ha Jarbidge River in Nevada. management considerations (see (533,426 ac) of lakes and reservoirs as ‘‘Exemptions under Section 4(a)(3) of the critical habitat, which includes 266.9 Federal agencies have an independent Act’’ and ‘‘Application of Section 4(b)(2) km (165.9 mi) of streams in the Jarbidge responsibility under section 7(a)(1) of of the Act’’ below). We are also River basin. the Act to use their programs in In the 2005 final rule, we did not furtherance of the Act and to utilize proposing to designate 266.9 km (165.9 designate any unoccupied critical their authorities to carry out programs mi) of streams in the Jarbidge River habitat because the Secretary concluded for the conservation of endangered and basin. that it was not possible to make a threatened species. We consider the Two economic analyses related to determination that such lands were development and implementation of previous bull trout critical habitat essential to the conservation of the land management plans by Federal proposed rules were prepared in 2004 species (70 FR 56232). In this rule, we agencies to be consistent with this and 2005, which followed a co- are proposing to designate 1,495 km statutory obligation under section extensive analytical approach, (929 mi) of streams (four percent of the 7(a)(1) of the Act. For this reason, consistent with recent court rulings. total) that are outside the geographical Federal land management plans, in and Those analyses considered conservation area occupied by the species at the time of themselves, are generally not an and protection activities for bull trout, it was listed that have been determined appropriate basis for excluding essential without distinguishing between impacts to be essential for the conservation of habitat, thus this rule does not propose associated with listing the species and the species. to exclude any Federal lands under those associated with the designation of In the 2005 rule, a variety of areas section 4(b)(2) of the Act. However, in critical habitat. The economic analysis were exempted from critical habitat some areas, Federal land management prepared for this proposed rule does not designation under section 4(a)(3) of the agencies actively manage for bull trout follow the coextensive analytical Act or excluded from designation as and its habitat and conduct specific approach, and differentiates between

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baseline and incremental economic previously understood. All areas known recovery, or enhancement measures by impacts. Under this approach, because to contain the most important bull trout the landowner. Where a landowner of the conservation measures already in habitat and PCEs, or that may be seeks or requests Federal agency place for salmon, steelhead, the Klamath unoccupied but essential to their funding or authorization for an action suckers, and other protected fish conservation, are proposed in this rule. that may affect a listed species or species, our analysis indicates that the Copies of the previous proposed and critical habitat, the consultation incremental economic impact in areas final bull trout critical habitat rules and requirements of section 7(a)(2) would occupied by bull trout will be small, a map showing the relationship of the apply but even in the event of a and the most significant incremental 2005 final rule and this proposed rule destruction or adverse modification effect will be in those areas not are available on the Idaho Fish and finding, the Federal action agency’s and currently occupied (less than four Wildlife Office web site at http:// the applicant’s obligation is not to percent of the areas being proposed as www.fws.gov/pacific/bulltrout. restore or recover the species, but to critical habitat). The majority of forecast implement reasonable and prudent incremental costs are associated with Critical Habitat alternatives to avoid destruction or unoccupied critical habitat in the Upper Background adverse modification of critical habitat. Willamette River Basin and are For inclusion in a critical habitat Critical habitat is defined in section 3 associated with conservation efforts designation, habitat within the of the Act as: undertaken at flood control facilities. geographical area occupied by the (1) The specific areas within the The discussion under ‘‘Draft Economic species at the time it was listed must geographical area occupied by the Analysis’’ below provides additional contain the physical and biological species, at the time it is listed in information in this regard. features that are essential to the The PCEs in this rule are similar to accordance with the Act, on which are conservation of the species, and be those described in the 2005 final found those physical or biological included only if those features may designation (70 FR 56236); however, we features require special management are proposing an additional PCE related (a) essential to the conservation of the considerations or protection. Critical to the presence of nonnative fish that species, and habitat designations identify habitat may prey on, compete with, or inbreed (b) which may require special areas that provide essential life cycle with, bull trout. In addition, we are management considerations or needs of the species (areas on which are considering reorganizing the PCEs, as protection; and found the physical and biological noted above, into broad habitat (2) specific areas outside the features (PBFs) laid out in the attributes (water bodies and migratory geographical area occupied by the appropriate quantity and spatial corridors), and identify specific needs of species at the time it is listed, upon a arrangement for the conservation of the bull trout within these broad categories. determination that such areas are species), based on the best scientific This reorganization would keep all of essential for the conservation of the data available. Under the regulation at the PCEs presented in this proposal species. 50 CFR 424.12(e), we can designate intact, but organizing them in such a Conservation, as defined under critical habitat in areas outside the way as to show the most important section 3 of the Act, means the use of geographical area occupied by the broad categories first, and then breaking all methods and procedures that are species at the time it is listed only when them down into specific descriptions. necessary to bring an endangered or we determine that those areas are A small proportion of critical habitat threatened species to the point at which essential for the conservation of the designated in the 2005 final rule is not the measures provided pursuant to the species and that designation limited to being proposed as critical habitat in this Act are no longer necessary. Such those areas occupied at the time of revision. These areas include streams methods and procedures include, but listing would be inadequate to ensure and lakes determined either not to are not limited to, all activities the conservation of the species. When include bull trout or any of their PCEs, associated with scientific resources the best available scientific data do not or not to be essential to their management such as research, census, demonstrate that the conservation needs conservation. For example, Sycan Marsh law enforcement, habitat acquisition of the species require such additional in the Klamath River basin no longer and maintenance, propagation, live areas, we will not designate critical holds enough water to support bull trapping, and transplantation, and, in habitat in areas outside the geographical trout, so we propose the stream the extraordinary case where population area occupied by the species at the time channels through the marsh as critical pressures within a given ecosystem of listing. An area currently occupied by habitat, allowing connectivity among cannot be otherwise relieved, may the species but that was not occupied at populations, instead of the entire marsh. include regulated taking. the time of listing may, however, be The remainder of the areas designated Critical habitat receives protection essential to the conservation of the in the 2005 final rule would remain under section 7 of the Act through the species and may be included in the designated as critical habitat if this prohibition against Federal agencies critical habitat designation. proposed revision is finalized. A carrying out, funding, or authorizing the Section 4 of the Act requires that we similarly small proportion of habitat destruction or adverse modification of designate critical habitat on the basis of proposed in this rule was not designated critical habitat. Section 7(a)(2) of the Act the best scientific and commercial data in the 2005 final rule. These areas requires consultation on Federal actions available. Further, our Policy on include streams and lakes since that may affect critical habitat. The Information Standards Under the determined to be occupied by bull trout, designation of critical habitat does not Endangered Species Act (published in to provide one or more PCEs, or as affect land ownership or establish a the Federal Register on July 1, 1994 (59 essential to their conservation. For refuge, wilderness, reserve, preserve, or FR 34271)), the Information Quality Act example, the mainstem Columbia River other conservation area. Such (section 515 of the Treasury and General and the lower portions of connecting designation does not allow the Government Appropriations Act for tributaries such as the John Day River government or public to access private Fiscal Year 2001 (Pub. L. 106-554; H.R. have been found to be more important lands. Such designation does not 5658)), and our associated Information for FMO habitat for bull trout than was require implementation of restoration, Quality Guidelines, provide criteria,

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establish procedures, and provide designation will not control the determining the geographic arrangement guidance to ensure that our decisions direction and substance of future of the updated recovery units included are based on the best scientific data recovery plans, habitat conservation ensuring (1) resiliency by protecting available. They require our biologists, to plans (HCPs), or other species large areas of high-quality habitat; (2) the extent consistent with the Act and conservation planning efforts if new redundancy by protecting multiple with the use of the best scientific data information available at the time of populations; and (3) representation by available, to use primary and original these planning efforts calls for a protecting diverse genetic and life- sources of information as the basis for different outcome. history aspects of bull trout populations recommendations to designate critical Relationship of Critical Habitat to distributed throughout the range of the habitat. listed entity (Tear et al. 2005, p. 841). When we are determining which areas Recovery Planning should be proposed as critical habitat, In developing this proposed rule, we Bull trout are listed under the Act as our primary source of information is considered the conservation ‘‘Threatened’’ throughout the generally the information developed relationship between the proposed coterminous United States primarily during the listing process for the critical habitat designation and recovery due to habitat threats. In 2008 the species. Additional information sources planning. Although recovery plans Service completed a 5–year review of may include the recovery plan for the formulate the recovery strategy for a bull trout status and concluded in part species, articles in peer-reviewed species, they are not regulatory that it should reevaluate the number of journals, conservation plans developed documents, and there are no specific bull trout Distinct Population Segments by States and counties, scientific status protections, prohibitions, or (DPSs), and consider reclassifying bull surveys and studies, biological requirements afforded a species based trout into separate DPSs. The Service assessments, or other unpublished solely on a recovery plan. Furthermore, subsequently recommended not materials and expert opinion or although critical habitat designation can immediately pursuing reclassification personal knowledge. contribute to the overall recovery due to time and cost constraints, but Habitat is often dynamic, and species strategy for a species, it does not, by applied relevant factors in its 1996 DPS may move from one area to another over itself, achieve recovery plan goals. The policy. As a result, six draft recovery time. Furthermore, we recognize that Act states in section 3(5)(C), ‘‘except in units (RUs) were identified. Subsequent critical habitat designated at a particular those circumstances determined by the to identifying these six RUs, we point in time may not include all of the Secretary, critical habitat shall not evaluated each RU and determined that habitat areas that we may later include the entire geographical area they were needed to ensure a resilient, determine are necessary for the recovery which can be occupied by the redundant, and representative ’’ of the species, based on scientific data threatened or endangered species. In distribution of bull trout populations not now available to the Service. For most cases, it is not the intent of the Act throughout the range of the listed entity. to designate critical habitat for every these reasons, a critical habitat To accomplish these goals, we need to designation does not signal that habitat population and every documented protect large areas of high-quality outside the designated area is historical location of a species. Instead, habitat, protect multiple populations, unimportant or may not be required for the focus of critical habitat designation and protect diverse genetic and life- recovery of the species. is on habitat that contains the physical Areas that are important to the and biological features essential to history aspects. conservation of the species, but are conservation of the species. The six draft recovery units identified outside the critical habitat designation, The 5–year review (Service 2008, p. for bull trout in the conterminous will continue to be subject to 45) recommended, in part, that we United States include: Mid-Columbia conservation actions Federal agencies update recovery units from the 2002 recovery unit; Saint Mary recovery unit; implement under section 7(a)(1) of the draft recovery plan for bull trout Columbia Headwaters recovery unit; Act. Areas that support populations are throughout their range (Service 2002), Coastal recovery unit; Klamath recovery also subject to the regulatory protections based on assemblages of bull trout core unit; and Upper Snake recovery unit afforded by the section 7(a)(2) jeopardy areas (metapopulations or interacting (Figure 1). Conserving each RU is standard, as determined on the basis of breeding populations) that retain genetic essential to conserving the listed entity the best available scientific information and ecological integrity and are as a whole. These six new biologically at the time of the agency action. significant to the distribution of bull based recovery units will be proposed to Federally funded or permitted projects trout throughout the conterminous replace the 27 recovery units previously affecting listed species outside their United States. To complete the recovery identified in the bull trout draft designated critical habitat areas may unit update, we consulted with recovery plan (Service 2002, Chapter 1, still result in jeopardy findings in some biologists from States, Federal agencies, p. 3). cases. Similarly, critical habitat and Native American tribes, using the designations made on the basis of the best scientific information available. Figure 1. Map of bull trout draft best available information at the time of Factors that were considered in recovery units

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BILLING CODE 4310–55–S

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Areas that support populations, but historic, geographical, and ecological occupied by adfluvial and fluvial are outside the critical habitat distributions of a species. populations. In these headwater designation, may continue to be subject As discussed in greater detail below, streams, resident bull trout are to conservation actions we implement we derived nine specific PCEs required associated with deep pools and in- under section 7(a)(1) of the Act. They for bull trout from the biological needs stream cover, and most stream-resident are also subject to the regulatory of the species as described or referred to populations are dwarfed (McPhail and protections afforded by the section in the Background section of this Baxter 1996, p. 12). The use of migratory 7(a)(2) jeopardy standard, as determined proposed rule and the following corridors by bull trout also results in on the basis of the best available information. The nine PCEs relate to (1) increased dispersion, facilitating gene scientific information at the time of the water quality; (2) migration corridors; flow among local populations agency action. Federally funded or (3) food availability; (4) instream (interbreeding groups) when individuals permitted projects affecting listed habitat; (5) water temperature; (6) from different local populations species outside their designated critical substrate characteristics; (7) stream interbreed, stray, or return to non-natal habitat areas may still result in jeopardy flow; (8) water quantity; and (9) streams. Also, local populations that findings in some cases. Similarly, nonnative species. have been extirpated by catastrophic critical habitat designations made on the Space for Individual and Population events may become reestablished basis of the best available information at Growth and for Normal Behavior because of movements by bull trout the time of designation will not control through migratory corridors (Rieman the direction and substance of future Streams and groundwater sources and McIntyre 1993, p. 7; MBTSG 1998, recovery plans, HCPs, or other species with high water quality and cold p. 45). conservation planning efforts if new temperatures, complex habitat, and Lakes and reservoirs also figure migratory corridors provide space for information available to these planning prominently in meeting the life-cycle individual and population growth and efforts calls for a different outcome. requirements of bull trout. For adfluvial for normal behavior for bull trout. (migrating between lakes and rivers or Methods Bull trout exhibit a number of life- streams) bull trout populations, lakes As required by section 4(b)(2) of the history strategies. Stream-resident bull and reservoirs provide an important Act, we use the best scientific data trout complete their entire life cycle in component of the core FMO habitat and available in determining areas that the tributary streams where they spawn are integral to maintaining the adfluvial contain the features that are essential to and rear. Some bull trout are migratory, life-history strategy that is commonly the conservation of bull trout. Data spawning in tributary streams where exhibited by bull trout. When juvenile sources include research published in juvenile fish usually rear from one to bull trout emigrate downstream to a lake peer-reviewed journals and previous four years before migrating to either a or reservoir from the spawning and Service documents on the species, larger river (fluvial form) or lake rearing streams in its headwaters, they including the final listing determination (adfluvial form) where they spend their enter a more productive lentic (still or adult life, returning to the tributary (FR 64 58909–58933; November 1, slow-moving water) environment that stream to spawn (Fraley and Shepard 1999), the bull trout draft recovery plan allows them to achieve rapid growth 1989, p. 133). These migratory forms (Service 2002), and the bull trout 5–year and energy storage. occur in areas where conditions allow review (Service 2008). Additionally, we Some reservoirs may have adversely for movement from upper watershed utilized regional Geographic affected bull trout, while others have spawning streams to larger downstream Information System (GIS) shape files for provided benefits. For example, the waters that contain greater foraging area calculations and mapping. basin of Hungry Horse Reservoir has opportunities (Dunham and Rieman functioned adequately for 50 years as a Primary Constituent Elements 1999, p. 646). Resident and migratory surrogate home for stranded Flathead In accordance with section 3(5)(A)(i) forms may be found together, and either Lake bull trout trapped upstream of the of the Act and regulations at 50 CFR form can produce resident or migratory dam when it was completed. While this 424.12(b), in determining which areas offspring (Rieman and McIntyre 1993, p. is an artificial impoundment, the habitat occupied at the time of listing to 2). Where ocean environments are the reservoir provides and the presence propose as critical habitat, we consider accessible to bull trout they may also of an enhanced prey base of native the physical and biological features that migrate to and from salt water minnows, suckers, and whitefish within are essential to the conservation of the (amphidromy). the reservoir sustain a large adfluvial species and that may require special The ability to migrate is important to bull trout population. Additionally, management considerations or the persistence of bull trout local while barriers to migration are often protection. These features are the PCEs populations (Rieman and McIntyre viewed as a negative consequence of laid out in the appropriate quantity and 1993, p. 2; Gilpin 1997, p. 4; Rieman dams, the connectivity barrier at Hungry spatial arrangement for conservation of and Clayton 1997, p 6; Rieman et al. Horse Dam has served an important, the species. These include, but are not 1997, p. 1121). Bull trout rely on albeit unintended, function in limited to: migratory corridors to move from restricting the proliferation of nonnative (1) Space for individual and spawning and rearing habitats to Salvelinus species (including brook population growth and for normal foraging and overwintering habitats and trout (Salvelinus fontinalis) and lake behavior; back. Migratory bull trout become much trout (Salvelinus namaycush)) from (2) Food, water, air, light, minerals, or larger than resident fish in the more downstream areas upstream above the other nutritional or physiological productive waters of larger streams and dam. lakes, leading to increased reproductive requirements; Food, Water, Air, Light, Minerals, or (3) Cover or shelter; potential. Stream resident populations (4) Sites for breeding, reproduction, or are associated with headwater streams Other Nutritional or Physiological rearing (or development) of offspring; in mountainous regions where cold Requirements and water and velocity barriers are common. Bull trout are opportunistic feeders (5) Habitats that are protected from Typically, these streams are smaller and that prey upon other organisms. Prey disturbance or are representative of the have higher gradients than those selection is primarily a function of size

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and life-history strategy. Resident and (Rieman and McIntyre 1993, p. 4). degradation (Fraley and Shepard 1989, juvenile migratory bull trout prey on Habitat components that particularly p. 141). Increases in fine sediment terrestrial and aquatic insects, macro- influence their distribution and appear to reduce egg survival and zooplankton, and small fish (Donald abundance include water temperature, emergence (Pratt 1992, p. 6). Juveniles and Alger 1993, p. 244; McPhail and cover, channel form and stability, are likely also affected. High juvenile Baxter 1996, p. 15). Adult migratory bull spawning and rearing substrate densities have been reported in areas trout feed almost exclusively on other conditions, and migratory corridors characterized by a diverse cobble fish (Rieman and McIntyre 1993, p. 3). (Fraley and Shepard 1989, p. 138; Goetz substrate and a low percent of fine Habitats must provide the necessary 1989, p. 19; Watson and Hillman 1997, sediments (Shepard et al. 1984, p. 6). aquatic and adjacent terrestrial p. 247). Habitats with cold water temperature, conditions to harbor prey species in Watson and Hillman (1997, p. 248) appropriately-sized stream substrate, sufficient quantity and diversity to meet concluded watersheds must have and stream substrate with a low level of the physiological requirements specific physical characteristics to fine material (i.e., less than 12 percent necessary to maintain bull trout provide the necessary habitat of fine substrate less than 0.85 populations. An abundant food base, requirements for bull trout spawning millimeter (mm) (0.03 inch (in.)) in including a broad array of terrestrial and rearing, and that the characteristics diameter) are necessary factors for egg organisms of riparian origin, aquatic are not necessarily ubiquitous incubation and juvenile rearing that macroinvertebrates, and forage fish, throughout the watersheds in which supports individual and population supports individual and population bull trout occur. The preferred growth (WFPB 1997, pp. 98, F-25). growth and allows for normal bull trout spawning habitat of bull trout consists behavior. of low-gradient stream reaches with Habitats Protected from Disturbance or loose, clean gravel (Fraley and Shepard Representative of the Historic, Cover or Shelter 1989, p. 133). Bull trout typically spawn Geographical, and Ecological At all life stages, bull trout require from August to November during Distributions of the Species complex forms of cover, including large periods of decreasing water There are some habitats throughout woody debris, undercut banks, temperatures (Swanberg 1997, p. 735). the range of the species that are well boulders, and pools (Fraley and Shepard However, migratory forms are known to protected from disturbance and 1989, pp. 137-138; Watson and Hillman begin spawning migrations as early as representative of ideal ecological 1997, p. 249). Juveniles and adults April and to move upstream as much as conditions of the species. These areas frequently inhabit side channels, stream 250 km (155 mi) to spawning areas mainly include wilderness, national margins, and pools with suitable cover (Fraley and Shepard 1989 p. 138; parks, and other public lands (Sexauer and James 1997, p. 368). Swanberg 1997, p. 735). specifically protected from most human McPhail and Baxter (1996, p. 11) Fraley and Shepard (1989, p. 137) disturbance (e.g., State parks), and often reported that newly emerged fry are reported that initiation of spawning by constitute bull trout ‘‘strongholds’’ with secretive and hide in gravel along bull trout in the Flathead River system robust, well-distributed populations. stream edges and side channels. They appeared to be related largely to water Some populations outside of these areas also reported that juveniles are found temperature, with spawning initiated may still be well protected for other mainly in pools but also in riffles and when water temperatures dropped reasons (e.g., conservation easements, runs, maintain focal sites near the below 10 °Celsius (°C) (50 °Fahrenheit Habitat Conservation Plans, Safe Harbor bottom, and are strongly associated with (°F)). Goetz (1989, pp. 22–32) reported Agreements), but many other instream cover, particularly overhead a temperature range from 4 to 10 °C (39 populations are threatened by human cover such as woody debris or riparian to 50 °F). Such areas often are associated vegetation. Bull trout have been with cold-water springs or groundwater actions. observed overwintering in deep beaver upwelling (Rieman et al. 1997, p. 1121; Water diversion and reservoir ponds or pools containing large woody Baxter et al. 1999, p. 137). Fraley and development can reduce stream flow, debris (Jakober 1995, p. 90). Adult bull Shepard (1989, p. 137) also found that reduce the amount of water available in trout migrating to spawning areas have groundwater influence and proximity to a stream channel, change water quality, been recorded as staying two to four cover are important factors influencing and alter groundwater regimes. These weeks at the mouths of spawning spawning site selection. They reported changes may collectively impact habitat tributaries in deeper holes or near logs the combination of relatively specific and passage for bull trout and can cause or cover debris (Fraley and Shepard requirements resulted in a restricted increases in water temperatures. 1989, p. 137). Bull trout may also use spawning distribution in relation to Impoundments may also increase lotic (swift-flowing water) and in some available stream habitat. nonnative species predation and cases saltwater environments seasonally Depending on water temperature, egg competition, which can significantly for reasons that include use as cover. incubation is normally 100 to 145 days affect bull trout populations. Some Riparian vegetation; large wood; (Pratt 1992, p. 5). Water temperatures of nonnative fish species that prey on bull variable stream channel morphology 1.2 to 5.4 °C (34.2 to 41.7 °F) have been trout include lake trout, walleye (Sander including deep pools, side-channels, reported for incubation, with an vitreum), northern pike (Esox lucius), undercut banks and substrates; and in optimum (best embryo survivorship) smallmouth bass (Micropterus some cases access to downstream temperature reported to be from 2 to 4 dolomieu), and brown trout (Salmo environments provide cover and shelter, °C (36 to 39 °F) (Fraley and Shepard trutta). Brown trout or other introduced which support individual and 1989, p. 138; McPhail and Baxter 1996, salmonids such as rainbow trout population growth and allow for normal p. 10). Juveniles remain in the substrate (Onchorynchus mykiss), as well as bull trout behavior. after hatching, such that the time from smallmouth bass, northern pike, egg deposition to emergence of fry can walleye, and other species also compete Sites for Breeding, Reproduction, or exceed 200 days. During the relatively with bull trout for limited resources. Rearing (or Development) of Offspring long incubation period in the gravel, Brook trout commonly hybridize with Bull trout have more specific habitat bull trout eggs are especially vulnerable bull trout (Ratliff and Howell 1992, p. requirements than most other salmonids to fine sediments and water quality 16; Leary et al. 1993, p. 857).

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The stability of stream channels and (1) Springs, seeps, groundwater management considerations or stream flows are important habitat sources, and subsurface water protection, and areas outside of the characteristics for bull trout populations connectivity (hyporehic flows) to geographical area occupied at the time (Rieman and McIntyre 1993, p. 5). The contribute to water quality and quantity of listing that are essential for bull trout side channels, stream margins, and and provide thermal refugia. conservation (Service 2009; also see pools with suitable cover for bull trout (2) Migratory habitats with minimal ‘‘Previous Federal Actions’’ section). The are sensitive to activities that directly or physical, biological, or water quality steps we followed in identifying critical indirectly affect stream channel stability impediments between spawning, habitat were: and alter natural flow patterns. For rearing, overwintering, and freshwater (1) Our initial step in identifying example, altered stream flow in the fall and marine foraging habitats, including critical habitat was to determine, in may disrupt bull trout during the but not limited to permanent, partial, accordance with section 3(5)(A)(i) of the spawning period, and channel intermittent, or seasonal barriers. Act and regulations at 50 CFR 424.12, instability may decrease survival of eggs (3) An abundant food base, including the physical and biological habitat and young juveniles in the gravel during terrestrial organisms of riparian origin, features essential to the conservation of winter through spring (Fraley and aquatic macroinvertebrates, and forage the species, as explained in the previous Shepard 1989, p. 141; Pratt 1992, p. 6; fish. section. We reviewed the best available Pratt and Huston 1993, p. 70). Streams (4) Complex river, stream, lake, scientific data pertaining to the habitat with a natural hydrograph (those with reservoir, and marine shoreline aquatic requirements of this species, including normal discharge variations over time as environments and processes with consulting with biologists from partner a response to seasonal precipitation); features such as large wood, side agencies and entities including Federal, permanent water; and an absence of channels, pools, undercut banks and State, tribal, and private biologists; nonnative species are representative of substrates, to provide a variety of experts from other scientific disciplines the highest quality ecological habitat of depths, gradients, velocities, and such as hydrology and forestry; resource the species. Streams with these structure. users; and other stakeholders with an characteristics provide space for (5) Water temperatures ranging from 2 interest in bull trout and the habitats ° ° individual and population growth. to 15 C (36 to 59 F), with adequate they depend on for survival and thermal refugia available for recovery. We also reviewed available We propose bull trout habitats of two temperatures at the upper end of this data concerning bull trout habitat use primary use types: spawning and range. Specific temperatures within this and preferences, habitat conditions, rearing (SR), and foraging, migration, range will vary depending on bull trout threats, limiting factors, population and overwintering (FMO). All nine PCEs life-history stage and form; geography; demographics, and known locations, listed below may be found in, or be elevation; diurnal and seasonal distribution, and abundances of bull essential to, bull trout in each of these variation; shade, such as that provided trout. two habitat use types. This proposed by riparian habitat; and local (2) We then identified the rule identifies over 3,500 water body groundwater influence. geographical areas occupied by bull segments as either SR or FMO habitat. (6) Substrates of sufficient amount, trout at the time of listing and areas not Due to a lack of sufficiently detailed size, and composition to ensure success occupied that may be essential for the data, we do not identify the specific of egg and embryo overwinter survival, conservation of bull trout. We used data PCEs present for each water body fry emergence, and young-of-the-year gathered during the bull trout recovery segment. Future consultations with the and juvenile survival. A minimal planning process and the bull trout draft Service on specific agency actions will amount (e.g., less than 12 percent) of recovery plan (Service 2002), and help identify those PCEs that are most fine substrate less than 0.85 mm (0.03 supplemented that data with recent data important in a specific water body in.) in diameter and minimal developed by State agencies, tribes, the segment. Factors such as time of year, embeddedness of these fines in larger U.S. Forest Service (USFS), and other seasonal precipitation, drought substrates are characteristic of these entities. This data was used to update conditions, and other phenomenon can conditions. bull trout status and distribution data influence the essential physical and (7) A natural hydrograph, including for purposes of the proposed critical biological features present at any peak, high, low, and base flows within habitat designation. For areas where we particular location at any particular time historic and seasonal ranges or, if flows had data gaps, we solicited expert across its range given the variability of are controlled, they minimize opinions from knowledgeable fisheries habitats used by bull trout. In addition, departures from a natural hydrograph. biologists in the local area. Material attributes such as stream flow and (8) Sufficient water quality and reviewed included data in reports substrate size and composition are quantity such that normal reproduction, submitted during section 7 influenced by stream order and growth, and survival are not inhibited. consultations, reports from biologists gradient. Accordingly, establishing an (9) Few or no nonnative predatory holding section 10(a)(1)(A) recovery upper and lower range of conditions for (e.g., lake trout, walleye, northern pike, permits, research published in peer- specific attributes in some cases may be smallmouth bass; inbreeding (e.g., brook reviewed scientific journals, academic impracticable. trout); or competitive (e.g., brown trout) theses, State and Federal government Primary Constituent Elements for Bull species present. agency reports, and regional GIS Trout overlays. Criteria Used To Identify Critical (3) We identified specific areas within Based on the above needs and our Habitat each of the six new draft recovery units current knowledge of the life-history, As required by section 4(b) of the Act, described above that contain the biology, and ecology of the species and we used the best scientific and physical and biological features the characteristics of the habitat commercial data available in essential to bull trout conservation, necessary to sustain the essential life- determining areas that contain the considering distribution, abundance, history functions of the species, we have physical and biological features trend, and connectivity needs. The identified the following PCEs for bull essential to the conservation of bull objective was to ensure the areas trout critical habitat. trout that may require special proposed for designation as critical

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habitat would effectively serve the goals by low fall and winter water considerations in addressing this we believe are important for recovery: temperatures, and existing thermally potential impact. (a) conserve the opportunity for diverse suitable habitat patches are often Over 30 years of research into wildlife life-history expression; (b) conserve the isolated from one another (Rieman et al. population sizes required for long-term opportunity for genetic diversity; (c) 2007, p. 1,553). With a warming climate, viability (avoiding extinction) suggests ensure that bull trout are distributed thermally suitable bull trout spawning that a minimum number of 5,000 across representative habitats; (d) ensure and rearing areas are predicted to shrink individuals may be needed in light of sufficient connectivity among during warm seasons, in some cases rapidly changing environmental populations; (e) ensure sufficient habitat very dramatically, becoming even more conditions such as accelerated climate to support population viability (e.g., isolated from one another under change (Traill et al. 2009, p. 3). abundance, trend indices); (f) address moderate climate change scenarios Although the minimum number of threats (see ‘‘Special Management (Rieman et al. 2007, pp. 1,558–1,562; individuals may vary depending on the Considerations or Protection’’ below), Porter and Nelitz 2009, pp. 5–7). species involved, for bull trout, we have including climate change (see below); Climate change will likely interact included additional unoccupied and (g) ensure sufficient redundancy in with other stressors, such as habitat loss habitats in those areas where occupied conserving population units. The above and fragmentation (Rieman et al. 2007, habitats currently support far less than recovery goals take into account the pp. 1,558–1,560; Porter and Nelitz 2009, this number of individuals, so there are threats and physical and biological p. 3); invasions of nonnative fish (Rahel adequate PCEs for those small needs of the species throughout its et al. 2008, pp. 552–553); diseases and populations to recover. For example, in range, and focus on its range-wide parasites (McCullough et al 2009, p. the Klamath basin where bull trout recovery needs. 104); predators and competitors status is weak and threats are high (that All critical habitat areas being (McMahon et al. 2007, pp. 1,313–1,323; is, where there are low number of proposed occur within the six new draft Rahel et al. 2008, pp. 552–553); and individuals or populations, and poor recovery units described above. Some flow alteration (McCullough et al. 2009, habitat quality), we are proposing to areas contained the physical and pp. 106–108), to render some current designate all occupied habitat and some biological features, but did not meet one spawning, rearing, and migratory unoccupied habitat to ensure sufficient or more of the above recovery goals habitats marginal or wholly unsuitable. connectivity among existing bull trout because those features were not present For example, introduced congeneric populations. Unoccupied habitat in an appropriate quantity and spatial populations of brook trout are widely proposed for protection is in FMO arrangement. Accordingly, we distributed throughout the range of bull habitat, and is intended to ensure determined that such areas are not trout. McMahon et al. (2007, p. 1,320) connectivity among existing, currently essential to bull trout conservation. For demonstrated the presence of brook isolated bull trout populations. example, some areas contained trout has a marked negative effect on Conversely, examples of occupied areas spawning habitat (PCEs 5 and 6), but are bull trout, an effect that is magnified at that are not proposed as critical habitat disconnected from other populations higher water temperatures (16–20 °C include those where bull trout occur in and not large enough to support viable (60–68 °F)). Changes and complex low densities in very isolated or tenuous bull trout populations. Other areas were interactions are difficult to predict at a populations, areas where bull trout are not included in this proposal because of spatial scale relevant to bull trout heavily compromised by nonnative limited habitat, marginal habitat, low conservation efforts, and key gaps exist species, or areas where available habitat bull trout density, or only sporadic in our understanding of whether bull is restricted. presence of bull trout recorded. trout (and other coldwater fishes) can Predicted global climate change behaviorally adapt to climate change. (4) In selecting areas to propose as appears likely to pose additional threats We considered probable effects of critical habitat, we considered factors to bull trout in many parts of their range climate change on bull trout by first specific to each river system, such as in the coterminous United States; qualitatively screening core areas to size (i.e., stream order), gradient, downscaled regional climate models for assess those which might be most channel morphology, connectivity to the Columbia River basin predict a vulnerable to climate change effects, other aquatic habitats, and habitat general air temperature warming of 1.0 and highlighting them in our 2008 complexity and diversity, as well as to 2.5 °C (33.8 to 36.5 °F) or more by update of status and threats data in the range-wide recovery considerations. We 2050 (Reiman et al. 2007, p. 1,552). This core area template documents (Service took into account the fact that bull trout predicted temperature trend will have 2008, p. 15). For example, in many habitat preference ranges from small important effects on the regional locations we prioritized cold water headwater streams used largely for distribution and local extent of habitats spring habitats for conservation because spawning and rearing, to downstream available to salmonids (Rieman et al. they may be among the most resistant mainstem portions of river networks 2007, p. 1,552). The optimal water habitats to climate change effects. In used for rearing, foraging, migration, or temperatures for bull trout appear to be other locations we deemphasized overwintering. substantially lower than those for other protection of some already low- To help determine which of these salmonids (Rieman et al. 2007, p. elevation, warmer, marginal bull trout specific areas are essential to bull trout 1,553). Coldwater fish do not physically habitats, anticipating that they would conservation, we considered the adapt well to thermal increases become even less valuable for the future species’ status in each recovery unit by (McCullough et al. 2009, pp. 96–101). conservation of bull trout. Over a period evaluating whether: (a) bull trout are Instead, they are more likely to change of decades, climate change may directly rare and exposed to threats, such that their behavior, alter the timing of certain threaten the integrity of the essential recovery needs include removing threats behaviors, experience increased physical and biological features from essentially all existing occurrences physical and biochemical stress, and described in PCEs 1, 2, 3, 5, 7, 8 and 9. and restoring bull trout to portions of exhibit reduced growth and survival Protecting bull trout strongholds and their historic range, or (b) bull trout are (McCullough et al. 2009, pp. 98–100). cold water refugia from disturbance and declining and exposed to threats, such Bull trout spawning and initial rearing ensuring connectivity among that recovery needs include stopping areas are currently largely constrained populations were important the decline and eliminating threats

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across key portions of their range, such of listing have been determined to be the physical and biological features in as currently occupied strongholds. essential for the conservation of the the adjacent critical habitat. NatureServe is a nonprofit species and are being proposed as We are proposing for designation of conservation organization whose critical habitat. In those areas, bull trout critical habitat lands that we have mission is to provide the scientific basis habitat and population loss over time determined were occupied at the time of for effective conservation action. The necessitates reestablishing bull trout in listing and contain sufficient PBFs to NatureServe database is sometimes used currently unoccupied habitat areas to support life-history functions essential as one of several factors in identifying achieve recovery. for the conservation of the species and species which may warrant listing Based on the considerations described lands outside of the geographical area under the Act, but in other cases the above, we propose a greater proportion occupied at the time of listing that we information in the NatureServe database of occupied habitat and more have determined are essential for the is limited in its usefulness for that unoccupied habitat for protection in conservation of bull trout. purpose. Additionally, NatureServe has areas where bull trout demonstrate less We are proposing to designate 32 developed a computer spreadsheet tool resiliency, redundancy, and critical habitat units (CHUs) within the used world-wide for evaluating a suite representation, and less critical habitat geographical area occupied by the of factors related to rarity, trends, and elsewhere. We find that areas occupied species at the time of listing. These threats to assess the extinction or at the time of listing are inadequate to units have an appropriate quantity and extirpation risk of species and ensure the conservation of the species. spatial arrangement of physical and ecosystems. We did use this spreadsheet Therefore, we are proposing additional biological features present that supports tool in analyzing the data we have for areas outside the geographical area bull trout metapopulations, life the bull trout. The protocol for assigning occupied by the species at the time it is processes, and overall species conservation. Twenty-nine of the units a conservation status rank to a species listed. For example, in the Klamath contain all of the physical and or population of a species is based on Basin Recovery Unit where threats to biological features identified in this using biological data to derive a score bull trout are greatest, we are proposing proposed rule, supporting multiple life- for each of ten conservation status to designate all habitat known to be history requirements. Three of the factors, which are grouped into three occupied at the time of listing that mainstem river units in the Columbia categories based on the characteristic of contains the physical and biological and Snake River basins contain most of the factor: rarity (six factors such as features essential to the conservation of the physical and biological features population size or habitat area), trends the species and which may require (two factors), and threats (two factors) necessary to support the bull trout’s special management considerations or (Master et al. 2007, pp. 6–11). By particular use of that habitat, other than protection, and we propose designating inserting extensive biological data for those associated with PCEs 5 and 6, a substantial proportion of unoccupied bull trout collected by the Service and which relate to breeding habitat. Lakes habitat outside of the geographical area its partners through 2007 into the and reservoirs within these units also occupied by the species at the time of NatureServe status assessment ranking contain most of the physical and listing that has been determined to be tool spreadsheet for each of 118 bull biological features necessary to support essential for bull trout conservation. Our trout core areas or watersheds bull trout, other than those associated primary consideration in proposing throughout their range, we were able to with PCEs 1, 4, and 6. Marine nearshore critical habitat for occupied areas is to determine the relative status and threats habitats within the Olympic Peninsula within each of the 118 bull trout core protect species strongholds for and Puget Sound CHUs contain only a areas or watersheds and each of the 6 spawning and rearing and FMO subset of the identified physical and draft recovery units. habitats. Our primary consideration for biological features for bull trout (PCEs 2, The proposed critical habitat most unoccupied areas is restoring 3, 5, and 8). However, these habitats are designation identifies specific areas connectivity among populations by important to conserving a diverse life- essential to the conservation of the bull protecting FMO habitats. history expression and representative trout local populations and spawning When determining proposed critical habitats. and rearing streams of highest habitat boundaries within this proposed Special Management Considerations or conservation value. Factors taken into rule, we made every effort to avoid Protection account at the smaller local population including developed areas such as lands scale included the largest areas or covered by buildings, pavement, and The term critical habitat is defined in populations, most highly connected other structures because such lands lack section 3(5)(A) of the Act, in part, as populations, and areas with the highest physical and biological features geographical areas on which are found conservation potential (i.e., the quantity essential for bull trout. The scale of the those physical and biological features and quality of physical and biological maps we prepared under the parameters essential to the conservation of the features present). At the larger core area for publication within the Code of species and which may require special scale, the proposed designation also Federal Regulations may not reflect the management considerations or focuses on areas having the highest exclusion of such developed lands. Any protections. Accordingly, when conservation value by applying the such lands inadvertently left inside designating critical habitat, we assess factors that were applied at the local critical habitat boundaries shown on the whether the specific areas within the population scale. At both the local maps of this proposed rule have been geographical area occupied by the population and core area scales, the excluded by text in the proposed rule species at the time of listing contain proposed designation emphasizes and are not proposed for designation as features that are essential to the essential FMO habitats of highest critical habitat. Therefore, if the critical conservation of the species and which conservation value, such as habitats that habitat is finalized as proposed, a may require special management connect local populations and core Federal action involving these lands considerations or protection. Although areas and provide required space for would not trigger section 7 consultation the determination that special life-history functions. In some areas, with respect to critical habitat and the management considerations or specific areas outside the geographical requirement of no adverse modification protection may be required is not a area occupied by bull trout at the time unless the specific action would affect prerequisite to designating critical

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habitat in areas essential to the trout embryo survival and juvenile bull integrity of the essential physical and conservation of the species that were trout rearing densities (Shepard et al. biological features described in PCEs 1– unoccupied at the time of listing, all 1984, p. 6; Pratt 1992, p. 6). An 8. Special management for the essential areas being proposed as critical habitat assessment of the interior Columbia features could include best management require some level of management to Basin ecosystem revealed that practices that could include project address current and future threats to increasing road densities were modifications specifically designed to bull trout, to maintain or enhance the associated with declines in four reduce these types of impacts in streams physical and biological features nonanadromous salmonid species (bull with bull trout, such as fencing essential to its conservation, and to trout; Yellowstone cutthroat trout livestock from streamsides, moving ensure the recovery of the species. (Oncorhyncus clarki bouvieri); animal feeding operations away from The primary land and water westslope cutthroat trout (O. c. lewisi); surface waters, using riparian buffer management activities impacting the and redband trout (O. mykiss ssp.)) strips near crop fields, minimizing physical and biological features within the Columbia River basin, likely water withdrawal from streams, essential to the conservation of bull through a variety of factors associated avoiding stream channel and spring trout which may require special with roads. Bull trout were less likely to head manipulation, and avoiding stream management considerations within the use highly roaded basins for spawning dewatering. proposed critical habitat units include and rearing and, if present, were likely Dams constructed without fish timber harvest and road building (forest to be at lower population levels passage features, or with poorly management practices), agriculture and (Quigley and Arbelbide 1997, p. 1183). designed fish passage features, create agricultural diversions, livestock These activities can directly and barriers to migratory bull trout, grazing, dams, mining, and nonnative immediately threaten the integrity of the precluding access to suitable spawning, species presence or introduction essential physical and biological rearing, and migration habitats. Dams (Beschta et al. 1987, p. 194; Chamberlin features described in PCEs 1–6. Special disrupt the connectivity within and et al. 1991, p. 194; Furniss et al. 1991, management considerations or between watersheds essential for p. 297; Meehan 1991, pp. 6–10; Nehlsen protections that may be needed for the maintaining aquatic ecosystem function et al. 1991, p. 4; Sedell and Everest essential features include the (Naiman et al. 1992, p. 127; Spence et 1991, p. 6; Craig and Wissmar 1993, p. implementation of best management al. 1996, p. 141) and bull trout 18; Frissell 1993, p. 350; Henjum et al. practices that could result in project subpopulation interaction (Rieman and 1994, p. 6; McIntosh et al. 1994, p. 37; modifications specifically designed to McIntyre 1993, p. 15). Natural Wissmar et al. 1994, p. 28; MBTSG reduce these impacts in streams with recolonization of historically occupied 1995a, p. i; MBTSG 1995b, p. i; MBTSG bull trout, particularly in spawning and sites can be precluded by migration 1995c, p. i; MBTSG 1995d, p. 1; USDA rearing habitat. Such best management barriers (e.g., McCloud Dam in and USDI 1995, p. 8, 1997, pp. 132–144; practices could result in project California). These activities can directly Light et al. 1996, p. 6; MBTSG 1996a, p. modifications that require measures to and immediately threaten the integrity ii; MBTSG 1996b, p. 1; MBTSG 1996c, ensure that road stream crossings do not of the essential physical and biological p. i; MBTSG 1996d, p. i; MBTSG 1996e, impede fish migration or occur in or features described in PCEs 2–7 and 9. p. i; MBTSG 1996f, p. 1; MBTSG 1996g, near spawning/rearing areas, or increase Special management considerations that p. 7; MBTSG 1996h, p. 7). Urbanization road surface drainage. may be needed for the essential features and residential development may also include the implementation of best impact the physical and biological Agricultural practices and associated management practices that could result features, and these features may require activities adjacent to streams and in in project modifications, such as special management considerations or upland portions of watersheds also can providing fish passage, specifically protections due to these development adversely affect the physical and designed to reduce these impacts in impacts. biological features essential to bull trout streams with bull trout. Timber harvest and road building in, conservation. Irrigation withdrawals, Mining can degrade aquatic systems or close to, riparian areas can including diversions, can dewater by generating sediment and heavy immediately reduce stream shading and spawning and rearing streams, impede metals pollution, altering water pH cover, channel stability, and large fish passage and migration, and entrain levels, and changing stream channels woody debris recruitment, and it can fish into the irrigation ditch from the and flow (Martin and Platts 1981, p. 2). increase sedimentation and peak stream river. Discharging pollutants such as These activities can directly and flows (Chamberlin et al. 1991, p. 180). nutrients, agricultural chemicals, animal immediately threaten the integrity of the These activities can subsequently lead waste, and sediment into spawning and essential physical and biological to increased stream temperatures and rearing waters is also detrimental features described in PCEs 1, 6, 7, and bank erosion and decreased long-term (Spence et al. 1996, p. 128). Agricultural 8, even if they occur some distance stream productivity. The effects of road practices regularly include stream upstream from critical habitat. Special construction and associated channelization and diking, large woody management for these essential features maintenance account for a majority of debris and riparian vegetation removal, could require best management sediment loads to streams in forested and bank armoring (Spence et al. 1996, practices that could result in project areas. In addition, stream crossings also p. 127). Improper livestock grazing can modifications specifically designed to can impede fish passage (Shepard et al. promote streambank erosion and reduce these impacts in streams with 1984, p. 1; Cederholm and Reid 1987, p. sedimentation and limit the growth of bull trout, such as avoiding surface 392; Furniss et al. 1991, p. 301). riparian vegetation important for water impacts from mining activities Sedimentation affects streams by temperature control, streambank and neutralizing or containing toxic reducing pool depth, altering substrate stability, fish cover, and detrital input materials generated. composition, reducing interstitial space, (Platts 1991, pp. 397–399). In addition, Introductions of nonnative species by and causing braiding of channels grazing often results in increased the Federal Government, State fish and (Rieman and McIntyre 1993, p. 6), organic nutrient input in streams (Platts game departments, and unauthorized which reduce carrying capacity. 1991, p. 423). These activities can private parties across the range of bull Sedimentation negatively affects bull directly and immediately threaten the trout have resulted in predation,

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declines in abundance, local nearshore marine areas, urbanization bankfull elevation is not evident on extirpations, and hybridization of bull and residential development has led to either bank, the ordinary high-water line trout (Bond 1992, p. 3; Howell and significant loss or physical alteration of determines the lateral extent of critical Buchanan 1992, p. viii; Donald and intertidal and shoreline habitats, as well habitat. The lateral extent of critical Alger 1993, p. 245; Leary et al. 1993, p. as led to the contamination of many habitat in lakes is defined by the 857; Pratt and Huston 1993, p. 75; estuarine and nearshore areas (PSWQAT perimeter of the water body as mapped MBTSG 1995b, p. 10; MBTSG 1995d, p. 2000, p. 47; BMSL et al. 2001, ch. 10, on standard 1:24,000 scale topographic 21; Platts et al. 1995, p. 9; MBTSG pp. 1–27 ; Fresh et al. 2004, p. 1). maps. In marine nearshore areas, the 1996g, p. 7; Palmisano and Kaczynski, Activities associated with urbanization inshore extent of critical habitat is the in litt.1997, p. 29). Nonnative species and residential development can mean higher high-water (MHHW) line, may exacerbate stresses on bull trout incrementally threaten the integrity of including tidally influenced freshwater from habitat degradation, fragmentation, the essential physical and biological heads of estuaries. Critical habitat isolation, and species interactions features described in PCEs 1–5, 7, and extends offshore to the depth of 10 (Rieman and McIntyre 1993, p. 3). These 8. Special management for these meters (m) (33 feet (ft)) relative to the activities can, over time, directly essential features could require best mean low low-water (MLLW) line. threaten the integrity of the essential management practices that could result The critical habitat areas we describe physical and biological features in project modifications specifically below constitute our current best described in PCE 9. Special designed to reduce these impacts in assessment of areas that meet the management needs and considerations streams with bull trout, such as setting definition of critical habitat for bull for this essential feature could require back developments from riparian areas, trout. A total of 36,497.70 km (22,678.5 the implementation of best management minimizing water runoff from urban mi) of streams (which includes 1,587.7 practices that could result in project areas directly to streams, minimizing km (985.3 mi) of marine shoreline area modifications specifically designed to hard surfaces such as pavement in (Table 2), and 215,870.1 ha (533,426.4 reduce these impacts in streams with watersheds, and minimizing impacts ac) of reservoir and lake surface area bull trout, such as avoiding future related to fertilizer application. (Table 3) are proposed as bull trout introductions, eradicating or controlling critical habitat. A total of 1,495 km (929 Proposed Critical Habitat Designation introduced species, and managing mi; four percent) of stream and marine habitat to favor bull trout over other We are proposing 32 critical habitat shoreline distance was unoccupied at species. units in 6 recovery units for bull trout. the time of listing, with the remainder Urbanization and residential Each CHU is comprised of a number of occupied. A total of 17,422 km (10,825 development in watersheds has led to specific streams or reservoir/lake areas, mi; 48 percent) of stream habitat is used decreased habitat complexity (uniform which are identified as subunits in this for spawning and rearing, with the stream channels and simple proposed rule. remainder—and all reservoirs and nonfunctional riparian areas), In freshwater areas, critical habitat lakes—used for FMO. Tables 4 and 5 impediments and blockages to fish includes the stream channels within the present total stream shoreline distance passage, increased surface runoff (more designated stream reaches and a lateral and reservoir and lake surface area frequent and severe flooding), and extent as defined by the bankfull proposed in each state. Table 6 presents decreased water quality and quantity elevation on one bank to the bankfull the ownership for all stream shoreline (Spence et al. 1996, pp. 130–134). In elevation on the opposite bank. If distances proposed as critical habitat.

TABLE 2.—STREAM/SHORELINE DISTANCE PROPOSED FOR DESIGNATION AS BULL TROUT CRITICAL HABITAT BY CRITICAL HABITAT UNIT AND REFERENCING RECOVERY UNIT

Kilo- Recovery Unit Critical habitat unit meters Miles

Coastal ...... 1.Olympic Peninsula ...... 1,292.9 803.4 1.Olympic Peninsula (Marine) ...... 673.8 418.7 2.Puget Sound ...... 2,737.3 1,700.8 2.Puget Sound (Marine) ...... 911.9 566.6 3.Lower Columbia River Basins ...... 360.9 224.3 4.Upper Willamette River ...... 304.9 189.5 5.Hood River ...... 113.1 70.3 6.Lower Deschutes River ...... 463.2 287.8 7.Odell Lake ...... 27.4 17.0 8.Mainstem Lower Columbia River ...... 342.2 212.6 Klamath ...... 9.Klamath River Basin ...... 440.0 273.4 Mid-Columbia ...... 10.Upper Columbia River Basins ...... 1,125.9 699.6 11.Yakima River ...... 1,191.4 740.3 12.John Day River ...... 1,176.4 731.0 13.Umatilla River ...... 211.8 131.6 14.Walla Walla River Basin ...... 452.7 281.3 15.Lower Snake River Basins ...... 284.2 176.6 16.Grande Ronde River ...... 1,057.7 657.2 17.Imnaha River ...... 285.7 177.5 18.Sheep and Granite Creeks ...... 47.9 29.7 19.Hells Canyon Complex ...... 399.3 248.1 20.Powder River Basin ...... 404.3 251.2 21.Clearwater River ...... 2,702.1 1,679.0 22.Mainstem Upper Columbia River ...... 522.7 324.8 23.Mainstem Snake River ...... 552.2 343.1

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TABLE 2.—STREAM/SHORELINE DISTANCE PROPOSED FOR DESIGNATION AS BULL TROUT CRITICAL HABITAT BY CRITICAL HABITAT UNIT AND REFERENCING RECOVERY UNIT—Continued

Kilo- Recovery Unit Critical habitat unit meters Miles

Upper Snake ...... 24. Malheur River Basin ...... 250.7 155.8 25.Jarbidge River ...... 266.9 165.9 26.Southwest Idaho River Basins ...... 2,716.7 1,688.1 27.Salmon River Basin ...... 8,119.4 5,045.1 28.Little Lost River ...... 206.6 128.4 Columbia Headwaters ...... 29.Coeur d’Alene River Basin ...... 819.6 509.3 30.Kootenai River Basin ...... 587.0 364.7 31.Clark Fork River Basin ...... 5,332.1 3,313.2 Saint Mary ...... 32.Saint Mary River Basin ...... 116.8 72.6

Total ...... 36,497.7 22,678.5

TABLE 3.—AREA OF RESERVOIRS OR LAKES PROPOSED FOR DESIGNATION AS BULL TROUT CRITICAL HABITAT BY CRITICAL HABITAT UNIT

Critical habitat unit Hectares Acres

1.Olympic Peninsula ...... 3,366.2 8,318.1 2.Puget Sound ...... 17,890.5 44,208.3 3.Lower Columbia River Basins ...... 4,856.1 11,999.7 4.Upper Willamette River ...... 3,601.5 8,899.6 5.Hood River ...... 36.9 91.1 6.Lower Deschutes River ...... 1,670.2 4,127.3 7.Odell Lake ...... 1,387.1 3,427.6 9.Klamath River Basin ...... 3,775.5 9,329.5 10.Upper Columbia River Basins ...... 1,033.2 2,553.1 11.Yakima River ...... 6,285.2 15,531.0 16.Grande Ronde River ...... 605.2 1,495.5 21.Clearwater River ...... 6,721.9 16,610.2 24.Malheur River Basin ...... 715.9 1,768.9 26.Southwest Idaho River Basins ...... 15,540.2 38,400.6 27.Salmon River Basin ...... 1,659.5 4,100.6 29.Coeur d’Alene River Basin ...... 12,606.9 31,152.2 30.Kootenai River Basin ...... 12,089.2 29,873.1 31.Clark Fork River Basin ...... 119,473.5 295,225.5 32.Saint Mary River Basin ...... 2,555.4 6,314.5

Total ...... 215,870.1 533,426.40

TABLE 4.—STREAM/SHORELINE DISTANCE PROPOSED FOR DESIGNATION AS BULL TROUT CRITICAL HABITAT BY STATE

State Kilometers Miles

Idaho ...... 15,563.4 9,670.6 Montana ...... 4,978.8 3,093.7 Nevada ...... 137.3 85.3 Oregon ...... 4,988.3 3,099.6 Oregon/Idaho ...... 273.8 170.1 Washington ...... 8,421.1 5,232.6 Washington Marine ...... 1,585.7 985.3 Washington/Idaho ...... 59.9 37.2 Washington/Oregon ...... 489.0 303.9

Total ...... 36,497.30 22,678.30

TABLE 5.—AREA OF RESERVOIRS OR LAKES PROPOSED FOR DESIGNATION AS BULL TROUT CRITICAL HABITAT BY STATE

State Hectares Acres

Idaho ...... 80,093.2 19,7914.7 Montana ...... 90,553.3 22,3762.2 Oregon ...... 11,792.3 29,139.5 Washington ...... 33,431.2 82,610.3

Total ...... 215,870.1 533,426.40

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TABLE 6.—STREAM/SHORELINE DISTANCE PROPOSED FOR DESIGNATION AS BULL TROUT CRITICAL HABITAT BY OWNERSHIP

Ownership Kilometers Miles

Federal ...... 21,276 13,220 Federal/Private ...... 422 262 Federal/State ...... 4 2 State ...... 889 552 Tribal ...... 683 424 Private ...... 13,223 8,216

Total ...... 36,497 22,676

We present a brief description of all to the north, the Pacific Ocean to the Counties in Washington. The major critical habitat designated in each of 32 west, and the Lower Columbia River river basins initiate from the Cascade units below, organized by recovery unit. Basins and Puget Sound CHUs to the Range and flow west, discharging into Maps depicting the units and subunits south. It extends across portions of Puget Sound, with the exception of the are included with the proposed Grays Harbor, Clallam, Mason, Pacific, Chilliwack River system, which flows amendatory language below. For a more and Jefferson Counties. All of the major northwest into British Columbia, detailed textual and graphic description river basins initiate from the Olympic discharging into the Fraser River. The of all units and subunits, please see our Mountains. The Olympic Peninsula Puget Sound CHU is divided into 13 website at http://www.fws.gov/pacific/ CHU is divided into 10 CHSUs. CHSUs. The subunits within this unit bulltrout, or contact the Idaho Fish and Although delta areas and small islands provide spawning, rearing, foraging, Wildlife Office (see FOR FURTHER are difficult to map and may not be migratory, connecting, and INFORMATION CONTACT above). The areas specifically identified by name, overwintering habitat. For a detailed being proposed as critical habitat below included within the critical habitat description of this unit and subunits, for satisfy each of the above ‘‘Criteria Used proposal are delta areas where streams justification of why this CHU, included to Identify Critical Habitat’’ form sloughs and braids and the CHSUs, or in some cases individual considerations, and will conserve the nearshore of small islands found within water bodies are proposed as critical opportunity for diverse life-history the proposed marine areas. The State of habitat, and for documentation of expression and genetic diversity; ensure Washington has assigned most streams occupancy by bull trout, see Service that bull trout are distributed across a stream catalog number. Typically, if (2009 pp. 11–13), or http:// representative habitats; ensure sufficient an unnamed stream or stream with no www.fws.gov/pacific/bulltrout. connectivity among populations; ensure official U.S. Geological Survey name is Unit 3: Lower Columbia River Basins sufficient habitat to support population proposed for critical habitat within the Unit viability; address threats; and ensure Puget Sound CHU, the stream catalog sufficient redundancy in conserving number is provided for reference. In The Lower Columbia River Basins population units. The characteristics of those cases where tributary streams do CHU consists of portions of the Lewis, each Critical Habitat Unit, Subunit, and not have a catalog number, they are White Salmon, and Klickitat Rivers and in some cases water body segment that referred to as ‘‘unnamed’’ or a locally associated tributaries in southwestern establish why a specific area is essential accepted name is used. The subunits and south-central Washington. The CHU to the conservation of bull trout are within this unit provide spawning, extends across Clark, Cowlitz, Klickitat, identified in the reference (Service rearing, foraging, migratory, connecting, Skamania, and Yakima Counties. 2009). Examples of attributes that were and overwintering habitat. For a Approximately 360.9 km (224.3 mi) of considered include habitat use (FMO, detailed description of this unit and stream and 4,856.1 ha (11,999.7 ac) of spawning and rearing), occupancy data, subunits, for justification of why this reservoir surface area are proposed as geographic limits, accessibility, CHU, included CHSUs, or in some cases critical habitat. There are three bull presence or absence of barriers, genetic individual water bodies are proposed as trout local populations in the Lewis analysis (used in metapopulation critical habitat, and for documentation River watershed and one in the Klickitat context), population data, habitat of occupancy by bull trout, see Service River watershed. The subunits within condition, and presence of anadromous (2009 pp. 9–11), or http://www.fws.gov/ this unit provide spawning, rearing, salmonids. pacific/bulltrout. foraging, migratory, connecting, and Coastal Recovery Unit overwintering habitat. For a detailed Unit 2: Puget Sound Unit description of this unit and subunits, for Unit 1: Olympic Peninsula Unit The Puget Sound CHU includes justification of why this CHU, included The Olympic Peninsula CHU is approximately 2,737.3 km (1,700.8 mi) CHSUs, or in some cases individual located in northwestern Washington. of streams; 17,890.5 ha (44,208.3 ac) of water bodies are proposed as critical Bull trout populations inhabiting the lake surface area; and 911.9 km (566.6 habitat, and for documentation of Olympic Peninsula comprise the coastal mi) of marine shoreline proposed as occupancy by bull trout, see Service component of the Coastal–Puget Sound critical habitat. The CHU is bordered by (2009 p. 14), or http://www.fws.gov/ population. The unit includes the Cascade Range to the east, Puget pacific/bulltrout. approximately 1,292.9 km (803.4 mi) of Sound to the west, Lower Columbia stream, 3,366.2 ha (8,318.1 ac) of lake River Basins and Olympic Peninsula Unit 4: Upper Willamette River Unit surface area, and 673.8 km (418.7 mi) of CHUs to the south, and the U.S.–Canada The Upper Willamette River CHU marine shoreline proposed as critical border to the north. The CHU extends includes 304.9 km (189.5 mi) of streams habitat. This CHU is bordered by Hood across Whatcom, Skagit, Snohomish, and 3,601.5 ha (8,899.6 ac) of lake Canal to the east, Strait of Juan de Fuca King, Pierce, Thurston, and Island surface area is proposed as critical

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habitat in the McKenzie River and Shitike Creek; (3) Whitewater River; (4) Unit 8: Mainstem Lower Columbia River Middle Fork Willamette River subbasins Jefferson Creek–Candle Creek Complex; Unit of western Oregon. This unit is located and (5) Jack Creek–Canyon Creek– The Mainstem Lower Columbia River primarily within Lane County, but also Heising Spring Complex. CHU extends from the mouth of the extends into Linn County. The Lower Deschutes River CHU Columbia River to John Day Dam and is There are three known bull trout local located in the states of Oregon and populations in the McKenzie River includes (1) the Metolius River basin, Washington. It includes Clatsop, subbasin and one bull trout local consisting of Canyon Creek, Jack Creek, Columbia, Multnomah, Hood River, population in the Middle Fork Heising Spring, Candle Creek, Jefferson Wasco, and Sherman Counties in Willamette River subbasin. With the Creek, Whitewater River, the mainstem Oregon and Pacific, Wahkiakum, exception of a short reach of the Metolius River, and Lake Billy Chinook; Cowlitz, Clark, Skamania, and Klickitat mainstem Willamette River and the (2) the mainstem Deschutes River from Counties in Washington. A total of 342.2 mainstem Middle Fork Willamette River Lake Billy Chinook to Big Falls; (3) (including reservoirs) below Hills Creek Whychus Creek upstream to the USFS km (212.6 mi) of stream are being Dam, segments proposed as critical 6360 Road crossing; (4) Crooked River proposed as critical habitat. This unit habitat are occupied by bull trout. The from its confluence with Lake Billy provides connecting habitat. For a stream segments that make up the Chinook upstream to Highway 97; (5) detailed description of this unit, for Willamette River Unit are described Shitike Creek; (6) Warm Springs River; justification of why this CHU, included below. This unit provides spawning, and (7) mainstem Deschutes River from CHSUs, or in some cases individual rearing, foraging, migratory, connecting, the Pelton Regulating Dam downstream water bodies are proposed as critical and overwintering habitat. For a to the Columbia River. habitat, and for documentation of detailed description of this unit, for occupancy by bull trout, see Service Approximately 463.2 km (287.8 mi) of (2009 p. 16), or http://www.fws.gov/ justification of why this CHU, included streams and 1,670.2 ha (4,127.3 ac) of CHSUs, or in some cases individual pacific/bulltrout. lake and reservoir surface area in the Unit 9: Klamath River Basin Unit water bodies are proposed as critical lower Deschutes River basin are habitat, and for documentation of (Klamath Recovery Unit) proposed as critical habitat. A portion of occupancy by bull trout, see Service The Klamath River Basin CHU is the reaches occur on the Confederated (2009 pp. 14–15), or http:// located in south-central Oregon and Tribes of Warm Springs lands. The www.fws.gov/pacific/bulltrout. includes three CHSUs: (1) Upper following stream segments are included Klamath Lake CHSU; (2) Sycan River Unit 5: Hood River Unit in the Lower Deschutes River CHU. This CHSU; and (3) Upper Sprague River The Hood River CHU includes the unit provides spawning, rearing, CHSU. It includes portions of Klamath mainstem Hood River and three major foraging, migratory, connecting, and and Lake Counties in Oregon. Total tributaries: Clear Branch Hood River, overwintering habitat. For a detailed proposed critical habitat in this unit West Fork Hood River, and East Fork description of this unit, for justification includes 440.0 km (273.4 mi) of streams Hood River. A total of 113.1 km (70.3 of why this CHU, included CHSUs, or and 3,775.5 ha (9,329.5 ac) of lake mi) of stream and 36.9 ha (91.1 ac) of in some cases individual water bodies surface area. The subunits within this lake surface is proposed as critical are proposed as critical habitat, and for unit provide spawning, rearing, habitat. Portions of the mainstem documentation of occupancy by bull foraging, migratory, connecting, and Columbia River utilized as FMO by trout, see Service (2009 p. 15), or http:// overwintering habitat. For a detailed Hood River bull trout are discussed in www.fws.gov/pacific/bulltrout. description of this unit and subunits, for the Lower Mainstem Columbia River justification of why this CHU, included Unit 7: Odell Lake Unit section of this document. CHSUs, or in some cases individual The Hood River CHU, located on the The Odell Lake CHU lies entirely water bodies are proposed as critical habitat, and for documentation of western slopes of the Cascades within the Deschutes National Forest in occupancy by bull trout, see Service Mountains in northwest Oregon, lies Deschutes and Klamath Counties, (2009 pp. 16–18), or http:// entirely within Hood River County, Oregon. Total proposed critical habitat www.fws.gov/pacific/bulltrout. Oregon. There are two local populations in this unit includes 27.4 km (17.0 mi) identified as essential: (1) Clear Branch Unit 10: Upper Columbia River Basins of streams and 1,387.1 ha (3,427.6 ac) of Unit (Mid-Columbia Recovery Unit) Hood River above Clear Branch Dam lake surface area. The single Odell Lake and (2) Hood River and tributaries The Upper Columbia River Basins bull trout population has been isolated below Clear Branch Dam. This unit CHU includes the entire drainages of from the Deschutes River population by provides spawning and rearing habitat. three CHSUs in central and north- a lava flow that impounded Odell Creek For a detailed description of this unit, central Washington on the east slopes of and formed Davis Lake approximately for justification of why this CHU, the Cascade Range and east of the 5,500 years ago. Odell Lake is the only included CHSUs, or in some cases Columbia River between Wenatchee, individual water bodies are proposed as remaining natural adfluvial population Washington, and the Okanogan River critical habitat, and for documentation of bull trout in Oregon. The following drainage: (1) Wenatchee River CHSU in of occupancy by bull trout, see Service lake area and stream segments are Chelan County; (2) Entiat River CHSU in (2009 p. 15), or http://www.fws.gov/ included in this CHU. This unit Chelan County; and (3) Methow River pacific/bulltrout. provides spawning and rearing habitat. CHSU in Okanogan County. The Upper For a detailed description of this unit, Columbia River Basins CHU also Unit 6: Lower Deschutes River Unit for justification of why this CHU, includes the Lake Chelan basin (with The Lower Deschutes River CHU is included CHSUs, or in some cases some proposed critical habitat and located in Wasco, Sherman, Jefferson, individual water bodies are proposed as Okanogan River basin) which Deschutes, and Crook Counties in critical habitat, and for documentation historically provided spawning and central Oregon. There are five known of occupancy by bull trout, see Service rearing and FMO habitat. But it is local population in the lower Deschutes (2009 p. 16), or http://www.fws.gov/ unclear what role these drainages may River basin: (1) Warm Springs River; (2) pacific/bulltrout. play in recovery. A total of 1,125.9 km

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(699.6 mi) of streams and 1,033.2 ha includes portions of the mainstem John Washington. There are five known bull (2,553.1 ac) of lake surface area in this Day River, North Fork John Day River, trout local populations in this unit: two CHU are proposed as critical habitat to Middle Fork John Day River, and their in the Walla Walla River basin and three provide for spawning and rearing, FMO tributary streams within Wheeler, Grant, in the Touchet River basin. The habitat to support three core areas and Umatilla Counties in Oregon. A subunits within this unit provide essential for conservation and recovery. total of 1,176.4 km (731.0 mi) of streams spawning, rearing, foraging, migratory, The subunits within this unit provide are proposed as critical habitat. connecting, and overwintering habitat. spawning, rearing, foraging, migratory, Four CHSUs are defined for the John For a detailed description of this unit connecting, and overwintering habitat. Day River CHU: Lower Mainstem John and subunits, for justification of why For a detailed description of this unit Day River, Upper Mainstem John Day this CHU, included CHSUs, or in some and subunits, for justification of why River, North Fork John Day River, and cases individual water bodies are this CHU, included CHSUs, or in some Middle Fork John Day River. The latter proposed as critical habitat, and for cases individual water bodies are three generally correspond to core areas. documentation of occupancy by bull proposed as critical habitat, and for All proposed critical habitat trout, see Service (2009 p. 21), or http:// documentation of occupancy by bull designations are essential to the long- www.fws.gov/pacific/bulltrout. trout, see Service (2009 pp. 18–19), or term conservation of the species. The Unit 15: Lower Snake River Basins Unit http://www.fws.gov/pacific/bulltrout. subunits within this unit provide spawning, rearing, foraging, migratory, The Lower Snake River Basins CHU is Unit 11: Yakima River Unit connecting, and overwintering habitat. located in southeast Washington and The Yakima River CHU supports For a detailed description of this unit contains two CHSUs: (1) Tucannon adfluvial, fluvial, and resident life- and subunits, for justification of why River basin CHSU located in Columbia history forms of bull trout. This CHU this CHU, included CHSUs, or in some and Garfield Counties and (2) Asotin includes the mainstem Yakima River cases individual water bodies are Creek basin CHSU within Garfield and and tributaries from its confluence with proposed as critical habitat, and for Asotin Counties. Approximately 284.2 the Columbia River upstream from the documentation of occupancy by bull km (176.6 mi) of stream are proposed as mouth of the Columbia River upstream trout, see Service (2009 p. 20), or http:// critical habitat for bull trout within this to its headwaters at the crest of the www.fws.gov/pacific/bulltrout. unit. The subunits within this unit Cascade Range. The Yakima River CHU provide spawning, rearing, foraging, is located on the eastern slopes of the Unit 13: Umatilla River Unit migratory, connecting, and Cascade Range in south-central The Umatilla River CHU is located in overwintering habitat. For a detailed Washington and encompasses the entire northeastern Oregon in Umatilla and description of this unit and subunits, for Yakima River basin located between the Union Counties. There are two local justification of why this CHU, included Klickitat and Wenatchee Basins. The populations in this unit: one in the CHSUs, or in some cases individual Yakima River basin is one of the largest North Fork Umatilla River and one in water bodies are proposed as critical basins in the State of Washington; it North Fork Meacham Creek. Bull trout habitat, and for documentation of drains southeast into the Columbia in this basin are primarily fluvial occupancy by bull trout, see Service River near the town of Richland, migrants that overwinter in middle and (2009 pp. 21–22), or http:// Washington. The basin occupies most of lower sections of the mainstem Umatilla www.fws.gov/pacific/bulltrout. Yakima and Kittitas Counties, about half River. Unit 16: Grande Ronde River Unit of Benton County, and a small portion Approximately 211.8 km (131.8 mi) of of Klickitat County. This CHU does not stream is proposed as critical habitat for The Grande Ronde River CHU is contain any subunits because it bull trout in the Umatilla River basin. located in northeast Oregon and supports one core area. A total of Approximately 48.7 km (30.3 mi) of southeast Washington and includes the 1,191.4 km (740.3 mi) of stream habitat stream within the Confederated Tribes Grande Ronde core area and the Little and 6,285.2 ha (15,531.0 ac) of lake and of the Umatilla Indian Reservation lands Minam core area. The Grande Ronde reservoir surface area in this CHU are is being proposed as critical habitat. The core area includes large portions of proposed as critical habitat. One of the stream segments that make up the Union and Wallowa Counties and a largest populations of bull trout (South Umatilla River CHU are described small portion of Umatilla County in Fork Tieton River population) in central below. This unit provides spawning, Oregon and about one-third of Asotin Washington is located above the Tieton rearing, foraging, migratory, connecting, County and small portions of Columbia Dam and supports the core area. This and overwintering habitat. For a and Garfield Counties in Washington. CHU supports two potential resident detailed description of this unit, for The Little Minam core area is located local populations identified in the U.S. justification of why this CHU, included entirely within the Eagle Cap Fish and Service’s 2008 five year review CHSUs, or in some cases individual Wilderness on the western edge of the (Service 2008, p. 6). This unit provides water bodies are proposed as critical Wallowa subbasin in both Union and spawning, rearing, foraging, migratory, habitat, and for documentation of Wallowa Counties in Oregon. connecting, and overwintering habitat. occupancy by bull trout, see Service The Grande Ronde River CHU For a detailed description of this unit, (2009 p. 21), or http://www.fws.gov/ contains at least ten local populations in for justification of why this CHU, pacific/bulltrout. the Grande Ronde River basin: (1) Upper included CHSUs, or in some cases Grande Ronde; (2) Catherine; (3) Indian; Unit 14: Walla Walla River Basin Unit individual water bodies are proposed as (4) Minam/Deer; (5) Lostine/Bear; (6) critical habitat, and for documentation The Walla Walla River Basin CHU Upper Hurricane; (7) North Fork of occupancy by bull trout, see Service straddles the Oregon–Washington State Wenaha; (8) South Fork Wenaha; (9) (2009 pp. 19–20), or http:// line in the eastern part of both States Butte and West Fork Butte; and (10) www.fws.gov/pacific/bulltrout. and includes two CHSUs. The unit Lookingglass. The Little Minam River, a includes 452.7 km (281.3 mi) of stream, separate core area and a tributary to the Unit 12: John Day River Unit extending across portions of Umatilla Minam River, encompasses tributaries The John Day River CHU in the John and Wallowa Counties in Oregon and containing one local population located Day River basin in eastern Oregon Walla Walla and Columbia Counties in above a barrier falls at approximately

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9.0 km (5.6 mi) upstream, as well as the as critical habitat. The subunits within (2009 pp. 24–26), or http:// Little Minam River below the barrier to this unit provide spawning, rearing, www.fws.gov/pacific/bulltrout. its confluence with the Minam River. foraging, migratory, connecting, and Unit 22: Mainstem Upper Columbia The Grande Ronde River CHU includes overwintering habitat. For a detailed River Unit 1,057.7 km (657.2 mi) of streams and description of this unit and subunits, for 605.2 ha (1,495.5 ac) of lakes and justification of why this CHU, included The Mainstem Upper Columbia River reservoirs proposed as critical habitat. CHSUs, or in some cases individual CHU includes the Columbia River from This unit provides spawning, rearing, water bodies are proposed as critical John Day Dam upstream 522.7 km foraging, migratory, connecting, and habitat, and for documentation of (324.8 mi) to Chief Joseph Dam. The overwintering habitat. For a detailed occupancy by bull trout, see Service Columbia River generally flows south description of this unit, for justification (2009 pp. 23–24), or http:// from Canada, southwest through of why this CHU, included CHSUs, or www.fws.gov/pacific/bulltrout. Washington, and west through Oregon. in some cases individual water bodies The Columbia River drains from its are proposed as critical habitat, and for Unit 20: Powder River Basin Unit headwaters in Alberta, Canada, and the documentation of occupancy by bull The Powder River Basin CHU west slopes of the Rocky Mountains in trout, see Service (2009 pp. 22–23), or includes approximately 404.3 km (251.2 Montana. This reach of river is heavily http://www.fws.gov/pacific/bulltrout. mi) of stream proposed as critical influenced by Grand Coulee Dam habitat and is located within Baker, operations, which provide Unit 17: Imnaha River Unit hydroelectricity and irrigation water. Union, and Wallowa Counties in The Imnaha River CHU extends across The Mainstem Upper Columbia River northeastern Oregon. This unit is Wallowa, Baker, and Union Counties in CHU supports FMO habitat for fluvial thought to contain 10 local populations northeastern Oregon. The CHU contains bull trout; several accounts exist of bull of bull trout and 1 potential local approximately 285.7 km (177.5 mi) of trout in the Columbia River between the population. Several unoccupied river proposed as critical habitat and Yakima and John Day Rivers. The sections of the Powder River mainstem four local populations: (1) Mainstem Mainstem Upper Columbia River CHU have been proposed to provide Imnaha River; (2) Big Sheep Creek and provides connectivity to the Mainstem connectivity and recovery opportunities tributary streams (Big Sheep Creek is Lower Columbia River CHU and 13 for local populations. The stream considered to be one local population additional CHUs (Clearwater River, segments that make up the Powder above and below the Wallowa Valley Powder River Basin, Imnaha River, River Basin CHU are described below. Irrigation Canal); (3) Little Sheep Creek Grande Ronde River, Walla Walla River This unit provides spawning, rearing, and tributary streams; and (4) McCully Basin, Umatilla River, John Day River, foraging, migratory, connecting, and Creek, which could be considered one Yakima River, Mainstem Snake River, overwintering habitat. For a detailed or two local populations depending if Lower Snake River Basins, Hells Canyon description of this unit, for justification Big Sheep Creek above and below the Complex, Sheep and Granite Creeks, of why this CHU, included CHSUs, or diversion are separated. This unit and Upper Columbia River Basins). The in some cases individual water bodies provides spawning, rearing, foraging, Mainstem Upper Columbia River CHU are proposed as critical habitat, and for migratory, connecting, and is located in north-central, central, and documentation of occupancy by bull overwintering habitat. For a detailed south-central Washington and north- trout, see Service (2009 p. 24), or http:// description of this unit, for justification central and northeast Oregon. This CHU www.fws.gov/pacific/bulltrout. of why this CHU, included CHSUs, or is within Klickitat, Franklin, Benton, in some cases individual water bodies Unit 21: Clearwater River Unit Grant, Yakima, Kittitas, Chelan, are proposed as critical habitat, and for Douglas, and Okanogan Counties in documentation of occupancy by bull The Clearwater River CHU is located Washington and Sherman, Gilliam, trout, see Service (2009 p. 23), or http:// east of Lewiston, Idaho, and extends Morrow, and Umatilla Counties in www.fws.gov/pacific/bulltrout. from the Snake River confluence at Oregon. Several dams, all of which have Lewiston on the west to headwaters in reports of bull trout using their ladders, Unit 18: Sheep and Granite Creeks Unit the Bitterroot Mountains along the are located throughout this portion of This CHU is located within Adams Idaho–Montana border on the east in the Columbia River, including John Day, and Idaho Counties in Idaho, Nez Perce, Latah, Lewis, Clearwater, McNary, Priest Rapids, Wanapum, Rock approximately 21.0 km (13.0 mi) east of Idaho, and Shoshone Counties. This Island, Rocky Reach, and Wells Dams. Riggins, Idaho. In the Sheep and Granite unit includes five CHSUs: Lower/ For a justification of why this CHU, Creeks CHU, 47.9 km (29.7 mi) of Middle Fork Clearwater River; North included CHSUs, or in some cases streams are proposed as critical habitat. Fork Clearwater River (and Fish Lake); individual water bodies are proposed as This unit provides spawning, rearing, South Fork Clearwater River; Lochsa critical habitat, and for documentation foraging, migratory, connecting, and River (and Fish Lake); and the Selway of occupancy by bull trout, see Service overwintering habitat. For a detailed River. In the Clearwater River CHU, (2009 p. 26), or http://www.fws.gov/ description of this unit, for justification 2,702.1 km (1,679.0 mi) of streams and pacific/bulltrout. of why this CHU, included CHSUs, or 6,721.9 ha (16,610.2 ac) of lake and Unit 23: Mainstem Snake River Unit in some cases individual water bodies reservoir surface area are proposed as are proposed as critical habitat, and for critical habitat. The subunits within this The Mainstem Snake River CHU is documentation of occupancy by bull unit provide spawning, rearing, located from the confluence with the trout, see Service (2009 p. 23), or http:// foraging, migratory, connecting, and Columbia River upstream to the head of www.fws.gov/pacific/bulltrout. overwintering habitat. For a detailed Brownlee Reservoir. The Snake River is description of this unit and subunits, for the largest tributary to the Columbia Unit 19: Hells Canyon Complex Unit justification of why this CHU, included River and forms the border between The Hells Canyon Complex is located CHSUs, or in some cases individual Washington and Idaho from Clarkston/ in Adams County, Idaho, and Baker water bodies are proposed as critical Lewiston upstream to Oregon. The County, Oregon. This CHU contains habitat, and for documentation of Snake River also forms the boundary 399.3 km (248.1 mi) of streams proposed occupancy by bull trout, see Service between Idaho and Oregon, and at that

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point upstream to the upper limit of Unit 25: Jarbidge River Unit Unit 27: Salmon River Basin Unit Brownlee Reservoir, forms this CHU. The Salmon River basin extends The Snake River is within Franklin, The Jarbidge River CHU encompasses the Jarbidge and Bruneau River basins, across central Idaho from the Snake Walla Walla, Columbia, Whitman, and River to the Montana–Idaho border. The Asotin Counties in Washington; which drain into the Snake River within C.J. Strike Reservoir upstream of Grand Salmon River Basin CHU extends across Wallowa, Whitman, Baker, and Malheur portions of Adams, Blaine, Custer, Counties in Oregon; and Nez Perce, View, Idaho. The Jarbidge River CHU is Idaho, Lemhi, Nez Perce, and Valley Idaho, Adams, and Washington located approximately 70 miles north of Counties in Idaho. There are 10 CHSUs: Counties in Idaho. Elko within Owyhee County in In the lower section of the Snake Little-Lower Salmon River, Opal Lake, southwestern Idaho and Elko County in Lake Creek, South Fork Salmon River, River are a series of dams and locks northeastern Nevada. built by the U.S. Army Corps of Middle Salmon–Panther River, Middle The Jarbidge River CHU includes Engineers (COE). The Lower Granite, Fork Salmon River, Middle Salmon Little Goose, Lower Monumental, and 266.9 km (165.9 mi) of streams proposed Chamberlain River, Upper Salmon Ice Harbor Dams generate hydroelectric as critical habitat. The Jarbidge River River, Lemhi River, and Pahsimeroi power and provide barge traffic CHU contains six local populations of River. The Salmon River Basin CHU navigation to Lewiston, Idaho. The resident and migratory bull trout and includes 8,119.4 km (5,045.1 mi) of major features in the Hells Canyon the stream segments in the Jarbidge stream and 1,659.5 ha (4,100.6 ac) of Hydroelectric Complex reach of the River CHU provide either FMO or lake and reservoir surface area proposed Snake River are Hells Canyon, Oxbow, spawning and rearing habitat. These as critical habitat. The subunits within and Brownlee Dams and their habitats maintain the population and this unit provide spawning, rearing, reservoirs. These projects are owned the migratory life-history form essential foraging, migratory, connecting, and and operated by the Idaho Power to the species’ long-term conservation overwintering habitat. For a detailed Company to produce electrical power. and provide habitat necessary for the description of this unit and subunits, for The Mainstem Snake River CHU recovered distribution of bull trout justification of why this CHU, included includes 552.2 km (343.1 mi) of streams (Service 2004b, pp. 7–9). The stream CHSUs, or in some cases individual proposed as critical habitat. This unit segments that make up the Jarbidge Unit water bodies are proposed as critical provides foraging, migratory, are described below. This unit provides habitat, and for documentation of occupancy by bull trout, see Service connecting, and overwintering habitat. spawning, rearing, foraging, migratory, (2009 pp. 29–30), or http:// For a detailed description of this unit, connecting, and overwintering habitat. www.fws.gov/pacific/bulltrout. for justification of why this CHU, For a detailed description of this unit, included CHSUs, or in some cases for justification of why this CHU, Unit 28: Little Lost River Unit individual water bodies are proposed as included CHSUs, or in some cases critical habitat, and for documentation Located within Butte, Custer, and individual water bodies are proposed as Lemhi Counties in east-central Idaho, of occupancy by bull trout, see Service critical habitat, and for documentation (2009 p. 26), or http://www.fws.gov/ near the town of Arco, Idaho, designated of occupancy by bull trout, see Service pacific/bulltrout. critical habitat in the Little Lost River (2009 p. 27), or http://www.fws.gov/ CHU includes 206.6 km (128.4 mi) of Unit 24: Malheur River Basin Unit pacific/bulltrout. streams proposed as critical habitat. (Upper Snake Recovery Unit) Unit 26: Southwest Idaho River Basins This unit provides spawning, rearing, The Malheur River Basin CHU is in Unit foraging, migratory, connecting, and eastern Oregon within Grant, Baker, overwintering habitat. For a detailed Harney, and Malheur Counties. A total The Southwest Idaho River Basins description of this unit, for justification of 250.7 km (155.8 mi) of streams and CHU is located in southwest Idaho in of why this CHU, included CHSUs, or 715.9 ha (1,768.9 ac) of reservoir surface the following counties: Adams, Boise, in some cases individual water bodies area are proposed as critical habitat. Camas, Canyon, Elmore, Gem, Valley, are proposed as critical habitat, and for There are two local bull trout and Washington. This unit includes documentation of occupancy by bull populations (Upper Malheur and North eight CHSUs: Anderson Ranch, trout, see Service (2009 p. 30), or http:// Fork Malheur Rivers (Service 2002, pp. Arrowrock Reservoir, South Fork www.fws.gov/pacific/bulltrout. 34–35)). The Bull Trout Draft Recovery Payette River, Deadwood River, Middle Unit 29: Coeur d’Alene River Basin Unit Plan also identified several streams, Fork Payette River, North Fork Payette (Columbia Headwaters Recovery Unit) including Bosonberg Creek, McCoy River, Squaw Creek, and Weiser River. Creek, and Corral Basin Creek, for Located in Kootenai, Shoshone, The Southwest Idaho River Basins CHU expansion of bull trout range within the Benewah, Bonner, and Latah Counties upper Malheur River local population includes approximately 2,716.7 km in Idaho, the Coeur d’Alene River Basin (Service 2002, pp. 34–35). Summit (1,688.1 mi) of streams and 15,540.2 ha CHU includes the entire Coeur d’Alene Creek is considered potential suitable (38,400.6 ac) of lake and reservoir Lake basin in northern Idaho. A total of bull trout habitat and is included in the surface area proposed as critical habitat. 819.6 km (509.3 mi) of streams and proposed designation. This unit The subunits within this unit provide 12,606.9 ha (31,152.2 ac) of lake surface provides spawning, rearing, foraging, spawning, rearing, foraging, migratory, area are proposed as critical habitat. migratory, connecting, and connecting, and overwintering habitat. There are no subunits within the Coeur overwintering habitat. For a detailed For a detailed description of this unit d’Alene River Basin CHU. This unit description of this unit, for justification and subunits, for justification of why provides spawning, rearing, foraging, of why this CHU, included CHSUs, or this CHU, included CHSUs, or in some migratory, connecting, and in some cases individual water bodies cases individual water bodies are overwintering habitat. For a detailed are proposed as critical habitat, and for proposed as critical habitat, and for description of this unit, for justification documentation of occupancy by bull documentation of occupancy by bull of why this CHU, included CHSUs, or trout, see Service (2009 p. 27), or http:// trout, see Service (2009 pp. 27–28), or in some cases individual water bodies www.fws.gov/pacific/bulltrout. http://www.fws.gov/pacific/bulltrout. are proposed as critical habitat, and for

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documentation of occupancy by bull of streams and 119,473.5 ha (295,225.5 (50 CFR 402.02) (see Gifford Pinchot trout, see Service (2009 p. 31), or http:// ac) of 45 lakes and reservoirs proposed Task Force v. U.S. Fish and Wildlife www.fws.gov/pacific/bulltrout. as critical habitat. The subunits within Service, 378 F.3d 1059 (9th Cir. 2004) this unit provide spawning, rearing, and Sierra Club v. U.S. Fish and Unit 30: Kootenai River Basin Unit foraging, migratory, connecting, and Wildlife Service et al., 245 F.3d 434, The Kootenai River Basin CHU is overwintering habitat. For a detailed 442 (5th Cir. 2001)), and we do not rely located in the northwestern corner of description of this unit and subunits, for on this regulatory definition when Montana and the northeastern tip of the justification of why this CHU, included analyzing whether an action is likely to Idaho panhandle and includes the CHSUs, or in some cases individual destroy or adversely modify critical Kootenai River watershed upstream and water bodies are proposed as critical habitat. Under the statutory provisions downstream of Libby Dam. The habitat, and for documentation of of the Act, we determine destruction or Kootenai River flows in a unique occupancy by bull trout, see Service adverse modification on the basis of horseshoe configuration, entering the (2009 pp. 32–36), or http:// whether, with implementation of the United States from British Columbia, www.fws.gov/pacific/bulltrout. proposed Federal action, the affected Canada, and then traversing across critical habitat would remain functional northwest Montana and the northern Unit 32: Saint Mary River Basin Unit (or retain those physical or biological Idaho panhandle before returning to (Saint Mary Recovery Unit) features that relate to the ability of the British Columbia from Idaho where it We are proposing to designate critical area to periodically support the species) eventually joins the upper Columbia habitat for bull trout in identified stream to serve its intended conservation role River drainage. The Kootenai River segments and lakes in the Saint Mary for the species. Basin CHU includes two CHSUs: the River Basin CHU in Montana. The entire Federal activities that may affect bull downstream Kootenai River CHSU in U.S. portion of the Saint Mary River trout or its designated critical habitat Boundary County, Idaho, and Lincoln drainage, which forms the Saint Mary require section 7 consultation under the County, Montana, and the upstream River Basin CHU, is located in Glacier Act. Activities on State, Tribal, local, or Lake Koocanusa CHSU in Lincoln County, Montana. The total stream private lands requiring a Federal permit County, Montana. The entire Kootenai distance proposed for designation as (such as a permit from the U.S. Army River Basin CHU includes 587.0 km critical habitat in Montana is about Corps of Engineers under section 404 of (364.7 mi) of streams and 12,089.2 ha 116.8 km (72.6 mi), and the five lakes the Clean Water Act (33 U.S.C. 1251 et (29,873.1 ac) of lake and reservoir have a surface area of about 2,555.4 ha seq.) or a permit from us under section surface area proposed as critical habitat. (6,314.5 ac). 10 of the Act) or involving some other The subunits within this unit provide Most high-elevation waters in Glacier Federal action (such as funding from the spawning, rearing, foraging, migratory, National Park were historically fishless. Federal Highway Administration, connecting, and overwintering habitat. Due to natural migration barriers, bull Federal Aviation Administration, or the For a detailed description of this unit trout occupancy in the headwaters of Federal Emergency Management and subunits, for justification of why the Belly River drainage (directly west Agency) are subject to the section 7 this CHU, included CHSUs, or in some of and adjacent to the Saint Mary River consultation process. Federal actions cases individual water bodies are drainage) was confined to only a very not affecting listed species or critical proposed as critical habitat, and for minor portion of the U.S habitat near habitat, and actions on State, Tribal, documentation of occupancy by bull the international border. Due to this local or private lands that are not trout, see Service (2009 pp. 31–32), or restricted U.S. distribution and the fact federally funded, authorized, or http://www.fws.gov/pacific/bulltrout. that all FMO habitat for these permitted do not require section 7 Unit 31: Clark Fork River Basin Unit populations is in Alberta, Canada, the consultation. If a species is listed or critical habitat The Clark Fork River Basin CHU Belly River headwaters in unroaded backcountry of Glacier National Park are is designated, section 7(a)(2) of the Act includes the northeastern corner of requires Federal agencies to ensure the Washington (Pend Oreille County), the not included in this proposed critical habitat designation. This unit provides activities they authorize, fund, or carry panhandle portion of northern Idaho out are not likely to jeopardize the (Boundary, Bonner, and Kootenai spawning, rearing, foraging, migratory, connecting, and overwintering habitat. continued existence of the species or Counties), and most of western Montana destroy or adversely modify its critical (Lincoln, Flathead, Sanders, Lake, For a detailed description of this unit, for justification of why this CHU, habitat. If a Federal action may affect a Mineral, Missoula, Powell, Lewis and listed species or its critical habitat, the Clark, Ravalli, Granite, and Deer Lodge included CHSUs, or in some cases individual water bodies are proposed as responsible Federal agency (action Counties). This unit includes 12 CHSUs, agency) must enter into consultation organized primarily on the basis of critical habitat, and for documentation of occupancy by bull trout, see Service with us. As a result of this consultation, major watersheds: Lake Pend Oreille, we document compliance with the Pend Oreille River, and lower Priest (2009 p. 36), or http://www.fws.gov/ pacific/bulltrout. requirements of section 7(a)(2) through River (Lake Pend Oreille); Priest Lakes our issuance of: and Upper Priest River (Priest Lakes); Effects of Critical Habitat Designation (1) A concurrence letter for Federal Lower Clark Fork River; Middle Clark actions that may affect, but are not Section 7 Consultation Fork River; Upper Clark Fork River; likely to adversely affect, listed species Flathead Lake, Flathead River, and Section 7(a)(2) of the Act requires or critical habitat; or Headwater Lakes (Flathead); Swan River Federal agencies, including the Service, (2) A biological opinion for Federal and Lakes (Swan); Hungry Horse to ensure that actions they fund, actions that may affect, and are likely to Reservoir, South Fork Flathead River, authorize, or carry out are not likely to adversely affect, listed species or critical and Headwater Lakes (South Fork destroy or adversely modify critical habitat. Flathead); Bitterroot River; Blackfoot habitat. Decisions by the U.S. Courts of When we issue a biological opinion River; Clearwater River and Lakes; and Appeal for the Fifth and Ninth Circuits concluding that a project is likely to Rock Creek. The Clark Fork River Basin have invalidated our definition of jeopardize the continued existence of a CHU includes 5,332.1 km (3,313.2 mi) ‘‘destruction or adverse modification’’ listed species or destroy or adversely

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modify critical habitat, we also provide species to survive and recover. An be comparable. As such, we do not reasonable and prudent alternatives to emphasis is also placed on anticipate, for many circumstances, that the project, if any are identifiable. We characterizing the condition of bull the outcome of the consultation to define ‘‘reasonable and prudent trout in the area affected by the address critical habitat will result in any alternatives’’ at 50 CFR 402.02 as proposed Federal action and the role of significant additional project alternative actions identified during affected populations in the survival and modifications or measures. consultation that: recovery of bull trout. That context is When consulting under section 7(a)(2) • Can be implemented in a manner then used to determine the significance in designated critical habitat, consistent with the intended purpose of of adverse and beneficial effects of the independent analyses are conducted for the action; proposed Federal action and any jeopardy to the species and adverse • Can be implemented consistent with cumulative effects for purposes of modification of critical habitat. In the scope of the Federal agency’s legal making the jeopardy determination. occupied bull trout habitat, any adverse authority and jurisdiction; Core areas form the building blocks that modification determination would • Are economically and provide for conserving the bull trout’s likely also result in a jeopardy technologically feasible; and evolutionary legacy as represented by determination for the same action. As • Would, in the Director’s opinion, major genetic groups. The jeopardy such, project modifications that may be avoid jeopardizing the continued analysis also considers any conservation needed to minimize impacts to the existence of the listed species or measures that may be proposed by a species would coincidentally minimize destroying or adversely modifying Federal action agency to minimize or impacts to critical habitat. Accordingly, critical habitat. compensate for adverse project effects to in occupied critical habitat it is unlikely Reasonable and prudent alternatives the bull trout or to promote its recovery. that an analysis would identify a can vary from slight project If a proposed Federal action is difference between measures needed to modifications to extensive redesign or incompatible with the viability of the avoid the destruction or adverse relocation of the project. Costs affected core area population(s), modification of critical habitat from associated with implementing a inclusive of associated habitat measures needed to avoid jeopardizing reasonable and prudent alternative are conditions, a jeopardy finding may be the species. Alternatively, in similarly variable. warranted, because of the relationship unoccupied critical habitat, we would Regulations at 50 CFR 402.16 require of each core area population to the not conduct a jeopardy analysis, Federal agencies to reinitiate survival and recovery of the species as however, measures to avoid the consultation on previously reviewed a whole. destruction or adverse modification may be necessary to ensure that the affected actions in instances where we have Adverse Modification Standard listed a new species or subsequently critical habitat area can continue to designated critical habitat that may be The analytical framework described serve its intended conservation role for affected and the Federal agency has in the Director’s December 9, 2004, the species, or retain the physical and retained discretionary involvement or memorandum is used to complete biological features related to the ability control over the action (or the agency’s section 7(a)(2) analyses for Federal of the area to periodically support the discretionary involvement or control is actions affecting bull trout critical species. habitat. The key factor related to the authorized by law). Consequently, The adverse modification analysis adverse modification determination is Federal agencies may sometimes need to focuses on the range-wide status of whether, with implementation of the request reinitiation of consultation with critical habitat, the factors responsible proposed Federal action, the affected us on actions for which consultation has for that condition, and what is necessary critical habitat would continue to serve been completed, if those actions with for critical habitat to provide the its intended conservation role for the discretionary involvement or control necessary conservation value to the bull species, or retain those physical and may affect subsequently listed species trout. An emphasis is placed on biological features that relate to the or designated critical habitat. characterizing the functional condition ability of the area to periodically of critical habitat PCEs in the area Application of the ‘‘Jeopardy’’ and support the species. Activities that may affected by the proposed Federal action. ‘‘Adverse Modification’’ Standards destroy or adversely modify critical This analysis then addresses how the habitat are those that alter the physical critical habitat PCEs will be affected, Jeopardy Standard and biological features to an extent that and in turn, how this will influence the Currently, the Service applies an appreciably reduces the conservation conservation role of critical habitat units analytical framework for bull trout value of critical habitat for bull trout. As in support of viable core area jeopardy analysis that relies heavily on discussed above, the role of critical populations. That context is then used the importance of known core area habitat is to support the life-history to determine the significance of adverse populations to the survival and recovery needs of the species and provide for the and beneficial effects of the proposed of bull trout. The section 7(a)(2) of the conservation of the species. Generally, Federal action and any cumulative Act analysis is focused not only on the conservation role of bull trout effects for purposes of making the these populations, but also on the critical habitat units is to support viable adverse modification determination at habitat conditions that support them. core area populations. the range-wide scale. If a proposed The jeopardy analysis usually Since the primary threat to bull trout Federal action would alter the physical expresses the survival and recovery is habitat loss or degredation, the or biological features of critical habitat needs of bull trout in a qualitative jeopardy analysis under section 7 of the to an extent that appreciably reduces the fashion without making distinctions Act for a project with a Federal nexus conservation function of critical habitat between what is necessary for survival will most likely evaluate the effects of for the bull trout, an adverse and what is necessary for recovery. the action on the conservation or modification finding for the proposed Generally, the jeopardy analysis focuses functionality of the habitat for the bull action is considered to be warranted. on the range-wide status of bull trout, trout. Because of this, we believe that in The intended purpose of critical habitat the factors responsible for that many cases the analysis of the project to to support viable core areas establishes condition, and what is necessary for this address designated critical habitat will a sensitive scale for relating effects of an

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action on CHUs or subunits to the changes in channel morphology by Exemptions conservation function of the entire altering sediment production, debris Application of Section 4(a)(3) of the Act designated critical habitat. loading, and peak flows. Section 4(b)(8) of the Act requires us (4) Detrimental alterations to the The Sikes Act Improvement Act of to briefly evaluate and describe, in any water chemistry in any of the designated 1997 (Sikes Act) (16 U.S.C. § 670a) proposed or final regulation that stream segments. Possible actions would required each military installation that designates critical habitat, activities include release of chemical or biological includes land and water suitable for the involving a Federal action that may pollutants into the surface water or conservation and management of destroy or adversely modify such connected groundwater at a point natural resources to complete an habitat, or that may be affected by such source or by dispersed releases Integrated Natural Resources designation. Activities that, when (nonpoint). Management Plan (INRMP) by carried out, funded, or authorized by a (5) Proposed activities that are likely November 17, 2001. An INRMP Federal agency, may affect critical to result in the introduction, spread, or integrates implementation of the habitat and, therefore, result in augmentation of nonnative species in military mission of the installation with consultation for the bull trout include, any of the designated stream segments. stewardship of the natural resources but are not limited to: Possible actions would include fish found on the base. Each INRMP (1) Detrimental alteration of the includes: stocking, use of live bait fish, • minimum flow or the natural flow aquaculture, improper construction and An assessment of the ecological regime of any of the designated stream operation of canals, and interbasin needs on the installation, including the segments. Possible actions would water transfers. need to provide for the conservation of include groundwater pumping, listed species; (6) Proposed activities that are likely impoundment, water diversion, and • A statement of goals and priorities; to create significant instream barriers to hydropower generation. We note that • A detailed description of bull trout movement. Possible actions such flow alterations resulting from management actions to be implemented would include water diversions, actions affecting tributaries of the to provide for these ecological needs; impoundments, and hydropower designated stream reaches may also and generation where effective fish passage destroy or adversely modify critical A monitoring and adaptive facilities, mechanisms, or procedures habitat. management plan. (2) Alterations to the designated are not provided. Among other things, each INRMP stream segments that could indirectly We consider all 32 CHUs to contain must, to the extent appropriate and cause significant and detrimental effects features essential to the conservation of applicable, provide for fish and wildlife to bull trout habitat. Possible actions the bull trout. All units are within the management; fish and wildlife habitat include vegetation manipulation, timber geographic range of the species, and enhancement or modification; wetland harvest, road construction and portions of all units were occupied by protection, enhancement, and maintenance, prescribed fire, livestock the species at the time of listing (based restoration where necessary to support grazing, off-road vehicle use, powerline on observations made within the last 20 fish and wildlife; and enforcement of or pipeline construction and repair, years). All units are likely to be used by applicable natural resource laws. mining, and development. Riparian the bull trout for foraging, migrating, The National Defense Authorization vegetation profoundly influences overwintering, spawning, or rearing. Act for Fiscal Year 2004 (Publ. L. 108– instream habitat conditions by Federal agencies already consult with 136) amended the Act to limit areas providing shade, organic matter, root us on activities in areas currently eligible for designation of critical strength, bank stability, and large woody occupied by the bull trout to ensure that habitat. Specifically, section 4(a)(3)(B)(i) debris inputs to streams. These their actions do not jeopardize the of the Act (16 U.S.C. § 1533(a)(3)(B)(i)) characteristics influence water continued existence of the bull trout. now provides, ‘‘The Secretary shall not temperature, structure and physical These agencies may need to request designate as critical habitat any lands or attributes (useable habitat space, depth, reinitiation on some of their existing other geographical areas owned or width, channel roughness, cover activities if the agency has continued controlled by the Department of complexity), and food supply. discretional involvement or control and Defense, or designated for its use, that (3) Detrimental alteration of the if the activity may affect designated are subject to an integrated natural channel morphology of any of the critical habitat. However, we anticipate resources management plan prepared designated stream segments. Possible the burden of reinitiation will be minor under section 101 of the Sikes Act (16 actions would include channelization; because of the aforementioned U.S.C. § 670a), if the Secretary impoundment; road and bridge similarity between measures needed to determines in writing that such plan construction; deprivation of substrate avoid the destruction or adverse provides a benefit to the species for source; destruction and alteration of modification of critical habitat and which critical habitat is proposed for aquatic or riparian vegetation; reduction measures needed to avoid jeopardizing designation.’’ of available floodplain; removal of the species. In addition, consultation We consult with the military on the gravel or floodplain terrace materials; tools such as streamlining and development and implementation of and excessive sedimentation from programmatic consultations are INRMPs for installations with listed mining, livestock grazing, road commonly implemented to minimize species. We analyzed INRMPs construction, timber harvest, off-road the administrative costs associated with developed by military installations vehicle use, and other watershed and consultation within the range of the bull located within the range of the floodplain disturbances. We note that trout. We expect these tools will Columbia and Coastal-Puget Sound such actions in the upper watershed continue be used for any reinitiations of populations of bull trout and which (beyond the riparian area) may also consultation for bull trout critical contain those features essential to the destroy or adversely modify critical habitat, thereby minimizing any species’ conservation, to determine if habitat. For example, timber harvest additional administrative costs these installations may warrant activities and associated road associated with designating the critical consideration for exemption under construction in upland areas can lead to habitat. section 4(a)(3) of the Act. Each of the

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Department of Defense (DOD) section 4(a)(3) of the Act. We are not through (1) protecting and enhancing installations identified below has been including approximately 7 ha (16 ac) of wetlands (e.g., all wetlands–marshes, conducting surveys and habitat habitat in this proposed critical habitat lakes, rivers, and streams are protected management to benefit the bull trout, designation because of this exemption. with 300-foot-wide riparian buffers to and reporting the results of their efforts maintain cold water temperatures, Naval Radio Station Jim Creek, Naval to the Service. Cooperation between the Station Everett, Naval Air Station prevent sediment from entering the DOD installations and the Service on Whidbey Island, and U.S. Army Fort streams, and to provide for woody specific conservation measures Lewis Installation debris); (2) controlling invasive plant continues. species that often diminish water Naval Radio Station Jim Creek in quality and impact native plants and Approved Integrated Natural Resources western Washington has an approved Management Plans animals; and (3) restoring salmon INRMP. The Naval Radio Station Jim spawning habitat and access to increase We have examined the INRMPs for Creek occurs in the Jim Creek salmon productivity, which contributes each of these military installations to watershed. The lower reaches of Jim to and enhances the bull trout prey base. determine whether they provide Creek provide foraging habitat for Habitat features essential to bull trout benefits to bull trout. subadult and adult bull trout. The Naval conservation are present within or Radio Station Jim Creek INRMP Acoustic Research Detachment (ARD) immediately adjacent to each of these provides benefits to bull trout through Naval Surface Warfare Center DOD installations, and each installation (1) restoration of riparian buffers along has an approved INRMP. Activities The Bayview Acoustic Research Jim Creek, (2) protection of Jim Creek occurring on these installations are Detachment (ARD) Naval Surface from erosion and sedimentation, and (3) being conducted in a manner that Warfare Center, Bayview, Idaho, has an protection of Jim Creek from provides a benefit to bull trout. In approved INRMP. This property contaminants and herbicides. addition, these installations already includes approximately 9.0 ha (22.0 ac) Naval Station Everett in western consult with us under section 7 of the of developed land on the shore of Lake Washington has an approved INRMP. Act on their actions (including those Pend Oreille and 7.0 ha (17.3 ac) of lake The Naval Station Everett property occurring in the open water training and area. There are no tributary streams includes land on or near the shores of testing areas) that may adversely affect within this area utilized by bull trout for Puget Sound that contain important spawning or early life rearing, but the bull trout and their habitat. foraging and migration habitat for Based on the above considerations, lake area does contain important FMO amphidromous (fish that move between and in accordance with section habitat for bull trout. fresh and salt water but not to breed) Bayview ARD’s INRMP outlines 4(a)(3)(B)(i) of the Act, we have bull trout. The Naval Station Everett’s determined that the identified lands are protection and management strategies INRMP benefits bull trout by providing subject to the Naval Radio Station Jim for natural resources on the center, (1) protection to bull trout in the marine Creek, Naval Station Everett, Naval Air including fish species and their habitats. environment from oil spills around Station Whidbey Island, and U.S. Army The plan benefits bull trout through the berthing naval vessels; (2) bioswales to Fort Lewis Installation INRMPs and that protection of kokanee salmon spawning prevent the release of toxins, conservation efforts identified in the habitat, a primary food source for bull contaminants, and oils from reaching INRMPs will provide a benefit to bull trout. The Bayview ARD property in the water column through storm drains; trout occurring in habitats within or Scenic Bay hosts from 40 to 70 percent and (3) restoration of riparian habitat on adjacent to DOD installations. of the kokanee spawning activity in Navy lands located along the Middle Therefore, lands within these Lake Pend Oreille, depending on the Fork Quilceda Creek. year. The INRMP includes measures to Naval Air Station Whidbey Island in installations are exempt from critical minimize impacts to kokanee habitat by western Washington has an approved habitat designation under section 4(a)(3) limiting facility boat traffic during INRMP. The Naval Station Whidbey of the Act. We are not including spawning periods (November– Island property includes land on or near approximately a total of 40 km (24.9 mi) December) and implementing sediment the shores of Puget Sound that contain of habitat determined to contain features control measures. Furthermore, important foraging and migration essential to the conservation of the bull interpretive signs have been placed habitat for amphidromous bull trout. trout in this proposed critical habitat throughout the property to educate Naval Aviation Station Whidbey designation because of these employees and the public regarding Island’s INRMP benefits bull trout exemptions. various aspects of the region’s natural through (1) monitoring and managing . resources, threatened or endangered livestock grazing, (2) managing road Exclusions species (including bull trout), and building and maintenance to prevent geological history. The INRMP requires erosion and sedimentation of bull trout Application of Section 4(b)(2) of the Act the natural resource manager to provide habitat, (3) assuring proper disposal of Section 4(b)(2) of the Act states that ARD INRMP awareness training to hazardous materials, and (4) the Secretary must designate or make facilitate INRMP implementation. implementation of their Integrated Pest revisions to critical habitat on the basis Based on the above considerations Management Plan’s best management of the best available scientific data after and in accordance with section practices to protect aquatic taking into consideration the economic 4(a)(3)(B)(i) of the Act, we have environments. impact, national security impact, and determined that the identified lands are The U.S. Army Fort Lewis Installation any other relevant impacts of specifying subject to the Bayview ARD INRMP and (Fort Lewis) located in western any particular area as critical habitat. that conservation efforts identified in Washington has an approved INRMP. The Secretary may exclude an area from the INRMP will provide a benefit to bull Fort Lewis borders the Nisqually River critical habitat if he determines that the trout occurring in habitats within or and Puget Sound near important benefits of such exclusion outweigh the adjacent to Bayview ARD. Therefore, foraging and migration habitat for benefits of specifying such area as part lands within this installation are exempt amphidromous bull trout. The INRMP of the critical habitat, unless he from critical habitat designation under for Fort Lewis benefits bull trout determines, based on the best scientific

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data available, that the failure to of bull trout presence and the designation would impair the benefits of designate such area as critical habitat importance of habitat protection and, in the plan; (7) the extent of public will result in the extinction of the cases where a Federal nexus exists, participation; (8) demonstrated track species. In making that determination, increases habitat protection for bull record of implementation success; (9) the legislative history is clear that the trout due to the protection from adverse level of public benefits derived from Secretary has broad discretion regarding modification or destruction of critical encouraging collaborative efforts and which factor(s) to use and how much habitat. encouraging private and local weight to give to any factor. When we evaluate the existence of a conservation efforts; and (10) the effect Under section 4(b)(2) of the Act, we conservation plan when considering the designation would have on may exclude an area from designated benefits of exclusion, we consider a partnerships. critical habitat based on economic variety of factors including, but not After evaluating the benefits of impacts, impacts to national security, or limited to, whether the plan is finalized; inclusion and the benefits of exclusion, any other relevant impacts. In how it provides for the conservation of we carefully weigh the two sides to considering whether to exclude a the essential physical and biological determine whether the benefits of particular area from the designation, we features; whether there is a reasonable excluding a particular area outweigh the must identify the benefits of including expectation that the conservation benefits of its inclusion in critical the area in the designation, identify the management strategies and actions habitat. If we determine that the benefits benefits of excluding the area from the contained in a management plan will be of excluding a particular area outweigh designation, and determine whether the implemented into the future; whether the benefits of its inclusion, then the benefits of exclusion outweigh the the conservation strategies in the plan Secretary can exercise his discretion to benefits of inclusion. If based on this are likely to be effective; and whether exclude the area, provided that the analysis, we make this determination, the plan contains a monitoring program exclusion will not result in the then we can exclude the area only if or adaptive management to ensure that extinction of the species. such exclusion would not result in the the conservation measures are effective Based on the information provided by extinction of the species. and can be adapted in the future in entities seeking exclusion, as well as When considering the benefits of response to new information. any additional public comments inclusion for an area, we consider the The Secretary can consider the received, we will evaluate whether additional regulatory benefits that area existence of conservation agreements certain lands in proposed critical habitat would receive from the protection from and other land management plans with may be appropriate for exclusion from adverse modification or destruction as a Federal, private, State, and Tribal the final designation. If our analysis result of actions with a Federal nexus; entities when making decisions under results in a determination that the the educational benefits of mapping section 4(b)(2) of the Act. The Secretary benefits of excluding particular areas essential habitat for recovery of the may also consider voluntary from the final designation outweigh the listed species; and any benefits that may partnerships and conservation plans, benefits of designating those areas as result from a designation due to State or and weigh the implementation and critical habitat, then the Secretary may Federal laws that may apply to critical effectiveness of these against that of exercise his discretion to exclude the habitat. designation. Consideration of relevant particular areas from the final When considering the benefits of impacts of designation or exclusion designation. exclusion, we consider, among other under section 4(b)(2) may include, but Under section 4(b)(2) of the Act, we things, whether exclusion of a specific is not limited to, any of the following must consider all relevant impacts, area is likely to result in the overall factors: (1) whether the plan provides including economic impacts. In conservation of the bull trout through specific information on how it protects addition to economic impacts the continuation, strengthening, or the species and the physical and (discussed in Economics Analysis encouragement of partnerships and the biological features, and whether the section below), we consider a number of implementation of management plans or plan is at a geographic scope factors in a section 4(b)(2) analysis. For programs that provide equal to or more commensurate with the species; (2) example, we consider whether there are conservation for the bull trout than whether the plan is complete and will lands owned by the DOD where a could be achieved through a designation be effective at conserving and protecting national security impact might exist. We of critical habitat. of the physical and biological features; also consider whether Federal or private In the case of bull trout, where there (3) whether a reasonable expectation landowners or other public agencies may be little additional regulatory exists that conservation management have developed management plans or effects in areas occupied by the species strategies and actions will be HCPs for the area or whether there are resulting from the designation, the implemented, that those responsible for conservation partnerships that would be benefits of critical habitat include implementing the plan are capable of encouraged or discouraged by educational benefits resulting from achieving the objectives, that an designation of, or exclusion from, identification of the features essential to implementation schedule exists, and critical habitat in an area. In addition, the conservation of bull trout and the that adequate funding exists; (4) we look at the presence of tribal lands delineation of the areas important for its whether the plan provides assurances or Tribal trust resources that might be recovery. Further, there may be that the conservation strategies and affected, and consider the government- additional benefits realized by measures will be effective (i.e., to-government relationship of the providing landowners, stakeholders, identifies biological goals, has United States with the tribal entities. and project proponents greater certainty provisions for reporting progress, and is We also consider any social impacts that about which specific areas are important of a duration sufficient to implement the might occur because of the designation. for bull trout that should be effectively plan); (5) whether the plan has a To ensure that our final determination addressed through coordination and monitoring program or adaptive is based on the best available consultation of activities that may affect management to ensure that the information, we are inviting comments those areas or essential features conservation measures are effective; (6) on any foreseeable economic, national contained therein. Thus, critical habitat the degree to which the record supports security, or other potential impacts designation increases public awareness a conclusion that a critical habitat resulting from this proposed designation

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of critical habitat from governmental, variety of entities and the voluntary control of invasive species) are business, or private interests and, in cooperation of many non-Federal necessary for species conservation (Bean particular, any potential impacts on landowners (Wilcove and Chen 1998, p. 2002, pp. 3–4). We believe the judicious small businesses. 1407; Crouse et al.2002, p. 720; James exclusion of specific areas of non- 2002, p. 271). Building partnerships and federally owned lands from critical Exclusions Based on National Security promoting voluntary cooperation of habitat designations can contribute to Impacts landowners is essential to species recovery and provide a superior Under section 4(b)(2) of the Act, we understanding the status of species on level of conservation than critical consider whether there are lands owned non-Federal lands and necessary to habitat alone. or managed by the Department of implement recovery actions, such as the The purpose of designating critical Defense where a national security reintroduction of listed species, habitat habitat is to contribute to the impact might exist. The Navy conducts restoration, and habitat protection. conservation of threatened and essential training and testing within the Many non-Federal landowners derive endangered species and the ecosystems marine waters of Crescent Harbor and satisfaction from contributing to upon which they depend. The outcome Dabob Bay in western Washington. endangered species recovery. of the designation, triggering regulatory These activities are conducted in open Conservation agreements with non- requirements for actions funded, marine waters not controlled by the Federal landowners, safe harbor authorized, or carried out by Federal military and are not included in agreements, other conservation agencies under section 7(a)(2) of the adjacent military INRMPs. However, agreements, easements, and State and Act, can sometimes be because these training and testing local regulations enhance species counterproductive to its intended activities may be essential for national conservation by extending species purpose on non-Federal lands. Thus, the security, we are evaluating whether it protections beyond those available benefits of excluding areas that are may be appropriate to consider the through section 7 consultations. We covered by partnerships or voluntary particular areas where these activities encourage non-Federal landowners to conservation efforts can, in specific occur for exclusion from the final enter into conservation agreements circumstances, be high. designation of critical habitat under based on a view that we can achieve Benefits of Excluding Lands with section 4(b)(2) of the Act. greater species conservation on non- Habitat Conservation Plans Federal land through such partnerships Exclusions Based on Other Relevant The benefits of excluding lands with Factors than we can through regulatory methods (61 FR 63854). approved HCPs from critical habitat Under section 4(b)(2) of the Act, we Many private landowners, however, designation include relieving consider any other relevant impacts, in are wary of the possible consequences of landowners, communities, and counties addition to economic impacts and attracting endangered species to their of any additional regulatory burden that impacts to national security. We property. Mounting evidence suggests might be imposed as a result of the consider a number of factors, including that some regulatory actions by the critical habitat designation. Many HCPs whether the landowners have developed government, while well intentioned and take years to develop and, upon any HCPs or other management plans required by law, can (under certain completion, are consistent with the for the area, or whether there are circumstances) have unintended recovery objectives for listed species conservation partnerships that would be negative consequences for the covered within the plan area. Many encouraged by designation of, or conservation of species on private lands conservation plans also provide exclusion from, critical habitat. In (Wilcove et al.1996, pp. 5–6; Bean 2002, conservation benefits to unlisted addition, we look at any Tribal issues, pp. 2–3; Conner and Mathews 2002, pp. sensitive species. and consider the government-to- 1–2; James 2002, pp. 270–271; Koch A related benefit of excluding lands government relationship of the United 2002, pp. 2–3; Brook et al.2003, pp. covered by approved HCPs from critical States with Tribal entities. We also 1639–1643). Many landowners fear a habitat designation is that it can make consider any social impacts that might decline in their property value due to it easier for us to seek new partnerships occur because of the designation. real or perceived restrictions on land- with future plan participants, including Most federally-listed species in the use options where threatened or States, counties, local jurisdictions, United States will not recover without endangered species are found. conservation organizations, and private cooperation of non-Federal landowners. Consequently, harboring endangered landowners, which together can More than 60 percent of the United species is viewed by many landowners implement conservation actions that we States is privately owned (Lubowski et as a liability. This perception results in would be unable to accomplish al. 2006, p. 35), and at least 80 percent anti-conservation incentives because otherwise. HCPs often cover a wide of endangered or threatened species maintaining habitats that harbor range of species, including species that occur either partially or solely on endangered species represents a risk to are not State and federally-listed and private lands (Crouse et al.2002, p. 720). future economic opportunities (Main et would otherwise receive little Stein et al. (1995, p. 400) found that al.1999, pp. 1264–1265; Brook et protection from development. By only about 12 percent of listed species al.2003, pp. 1644–1648). excluding these lands, we preserve our were found almost exclusively on According to some researchers, the current partnerships and encourage Federal lands (90 to 100 percent of their designation of critical habitat on private additional future conservation actions. known occurrences restricted to Federal lands significantly reduces the We also note that permit issuance in lands) and that 50 percent of federally- likelihood that landowners will support association with HCP applications listed species are not known to occur on and carry out conservation actions requires consultation under section Federal lands at all. (Main et al.1999, p. 1263; Bean 2002, p. 7(a)(2) of the Act, which would include Given the distribution of listed 2; Brook et al.2003, pp. 1644–1648). The the review of the effects of all HCP- species with respect to landownership, magnitude of this negative outcome is covered activities that might adversely conservation of listed species in many greatly amplified in situations where impact the species under a jeopardy parts of the United States is dependent active management measures (such as standard, including possibly significant upon working partnerships with a wide reintroduction, fire management, and habitat modification (see definition of

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‘‘harm’’ at 50 CFR 17.3), even without native salmonids (including bull trout) final bull trout revised critical habitat the critical habitat designation. In occurring on 647,500 ha (1.6 million ac) rule. The DNRC is developing an HCP addition, all other Federal actions that of Plum Creek’s timberlands in for forest management activities on its may affect the listed species would still Montana, Idaho, and Washington. The forested State trust lands in Montana, require consultation under section stated purpose of the Plum Creek Native which are managed by the Trust Lands 7(a)(2) of the Act, and we would review Fish Habitat Conservation Plan (NFHCP) Management Division (TLMD). The these actions for possible significant was to help conserve native salmonids mission of the TLMD is to manage trust habitat modification in accordance with and their ecosystems while allowing land resources to produce revenues for the definition of harm referenced above. Plum Creek to continue to conduct the trust beneficiaries while considering For the reasons discussed under the commercial timber harvest within a environmental factors and protecting ‘‘Application of Section 4(b)(2) of the framework of long-term regulatory the future income-generating capacity of Act’’ section of this rule, if the Secretary certainty and flexibility. The NFHCP the land. Under its forest management decides to exercise his discretion under was permitted in 2000; Plum Creek no program, the TLMD generates revenues section 4(b)(2) of the Act, we have longer owns any of the lands that were for trust beneficiaries through timber identified certain areas that we are covered under that HCP in the States of harvest on classified forest trust lands. considering excluding from the final Idaho and Washington. DNRC manages its forested trust lands revised critical habitat designation for Currently, there are 392,393 ha in accordance with the State Forest bull trout. However, we solicit (969,624 ac) of remaining Plum Creek Land Management Plan (SFLMP) (DNRC comments on the inclusion or exclusion land in Montana that are still covered by 1996) and the Administrative Rules of of such particular areas (see Public the original permit under the NFHCP. Montana (ARMs) for Forest Management Comments section). During the The NFHCP provisions cover (ARMs 36.11.401–456) (Forest development of the final revised approximately 550,700 ha (1.4 million Management ARMs). DNRC’s forested designation, we will consider economic ac) in western Montana and within its trust lands also support Federally-listed impacts, public comments, and other headwaters of the Columbia River basin threatened species. The ARMs direct new information. As a result, additional (Clark Fork and Kootenai River DNRC to confer with the Service to particular areas, in addition to those watersheds). In 2003–2004, when the develop habitat mitigation measures to identified below for potential exclusion Stimson Lumber Company (Stimson) address the needs of listed species. in this proposed rule, may be excluded acquired about 32,650 ha (80,681 ac) of This proposed HCP is a programmatic from the final critical habitat lands previously owned by Plum Creek, plan that identifies DNRC’s proposal for designation under section 4(b)(2) of the Stimson legally assumed all of the Plum managing federally-listed species on Act. Creek NFHCP commitments in that area DNRC’s forested trust lands. Species We consider a current plan to be by executing an assignment and covered under the HCP include bull appropriate for consideration for assumption agreement. In 2008, the trout, westslope cutthroat trout, exclusion from a final critical habitat Montana Working Forests Project was Columbia redband trout, grizzly bear designation under section 4(b)(2) of the initiated, which will result in the (Ursus arctos), and Canada lynx (Lynx Act if: transfer of over 125,580 ha (310,312 ac) canadensis). DNRC has proposed that a (1) It provides for the conservation of of Plum Creek NFHCP lands to The permit be issued under section the essential physical and biological Nature Conservancy (TNC). Funds for 10(a)(1)(B) of the Act by the Service for features; the acquisition were obtained through a a period of 50 years, and views the HCP (2) there is a reasonable expectation provision within the 2008 Farm Bill, as a long-term program for addressing that the conservation management and most of those lands are destined to and improving habitat needs across the strategies and actions contained in a eventually be transferred to either the landscape. DNRC evaluated which trust management plan will be implemented Service or the Montana Department of lands to include in the HCP by assessing into the future; and Natural Resources and Conservation where species overlapped with trust (3) the conservation strategies in the (DNRC) and Montana Fish, Wildlife, lands containing appreciable amounts of plan are likely to be effective; and and Parks (FWP). Phase III of the manageable forest area. This approach whether the plan contains a monitoring Montana Working Forests Project is was adopted to ensure those lands program or adaptive management to expected to close at the end of 2010 and facing the greatest risk of impacts from ensure that the conservation measures will include an additional 28,135 ha forest management actions were are effective and can be adapted in the (69,522 ac). Similar to Stimson, and included in the plan so risks could be future in response to new information. through an agreement, TNC assumed the mitigated. Below is a brief description of each NFHCP commitments on previously The HCP project area includes plan and the lands proposed as critical owned Plum Creek lands for the first primarily forested trust lands, but it habitat covered by each plan that we are two phases of the Montana Working contains other non-forested trust lands considering for exclusion from critical Forests Project and is anticipated to do that are portions of, or are needed to habitat designation under section 4(b)(2) the same for Phase III. access, forested parcels included in the of the Act. HCP project area. The DNRC HCP would Montana Department of Natural cover forest management activities on Plum Creek Native Fish Habitat Resources and Conservation Habitat forested trust lands that provide habitat Conservation Plan Conservation Plan for the HCP species and include timber The Service is considering excluding The Service is considering excluding harvest (commercial timber, salvage bull trout habitat occurring on lands bull trout habitat occurring on 175,263 harvest, and silvicultural treatments managed under the Plum Creek Native ha (433,084 ac) of lakes managed under such as thinning); other forest Fish Habitat Conservation Plan in the the proposed DNRC Habitat management activities (slash disposal, Kootenai and Clark Fork CHUs in the Conservation Plan in the Kootenai, prescribed burning, site preparation, Columbia Headwaters draft recovery Clark Fork and Saint Mary CHUs in the reforestation, fertilization, forest unit in Montana. Plum Creek Timber Columbia Headwaters draft recovery inventory, and access to forested lands Company initiated an effort in 1997 to unit, contingent on the compatibility of for weed control); roads (forest develop a conservation strategy for timing between the final HCP and the management road construction,

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reconstruction, maintenance, use, and Green Diamond Habitat Conservation Tacoma Water Green River Water associated gravel quarrying for forest Plan Supply Operations and Watershed road surface materials, as well as Protection Habitat Conservation Plan The Service is considering excluding installation, removal, and replacement The Service is considering excluding of stream crossing structures); and bull trout habitat on lands managed under the Green Diamond Habitat bull trout habitat on lands managed livestock grazing (grazing licenses on under the Tacoma Green River Water Conservation Plan in Coastal Recovery classified forest trust lands). Supply Operations and Watershed The public comment period for the Unit, Olympic Peninsula CHU. In Protection HCP in the Coastal Recovery DNRC HCP closed October 6, 2009; the October 2000, Simpson Timber Unit, Puget Sound CHU. The Tacoma current schedule calls for publishing the Company (now Green Diamond), Water Green River Water Supply Final Environmental Impact Statement completed an HCP, and we issued a Operations and Watershed Protection (FEIS) in October 2010. The Record of permit authorizing incidental take HCP was completed in July 2001, Decision (ROD) would be finalized 30 associated with forestry operations on addressing upstream and downstream days after publication of the FEIS, and the company’s Washington timberlands fish passage issues, flows in the Middle a section 10(a)(1)(B) permit could be located on or adjacent to the Olympic issued at that time, if the Service and lower Green River, and timber and Peninsula in Mason, Thurston, and watershed management activities on determines that issuance of a permit is Grays Harbor Counties. The HCP is appropriate. To be considered for Tacoma-owned land in the upper Green designed to conserve riparian forests, River Watershed. The HCP covers 32 exclusion from the final designation of improve water quality, prevent critical habitat for the bull trout, the species (including bull trout), and management-related hill-slope includes an upstream fish passage DNRC HCP will need to be completed instability, and address hydrological and finalized prior to the finalization of facility that will open up 57,000 ha maturity of small subbasins. The HCP (140,800 ac) of previously blocked fish critical habitat, which is due by addresses five listed species, including September 30, 2010. habitat, sponsorship and funding for a bull trout, and 46 non-listed species. downstream fish-passage facility at the Washington Department of Natural The HCP covers the land owned by Corps of Engineers’ Howard Hanson Resources Habitat Conservation Plan Green Diamond along the lower reaches Dam, water-flow improvements, The Service is considering excluding of the North and South Fork Skokomish improved riparian forest management lands managed under the Washington Rivers, the upper South Fork Skokomish on Tacoma’s lands, and several major Department of Natural Resources River, West Fork Satsop River, and habitat restoration projects. Canyon River. (WDNR) HCP in the Coastal Recovery Washington State Forest Practices Rules Unit: Puget Sound, Olympic Peninsula, City of Seattle Cedar River Watershed and Forest Practices Regulations and Lower Columbia CHUs. The WDNR Habitat Conservation Plan HCP covers State forest trust lands The Service is considering excluding within the range of the northern spotted The Service is considering excluding all public and private lands in the State owl (Strix occidentalis caurina) in the bull trout habitat on lands managed of Washington that would be managed State of Washington. The majority of the under the City of Seattle Cedar River under the Washington forest practice lands covered by the HCP Watershed HCP in the Coastal Recovery rules. These lands occur in the Coastal Recovery Unit (Puget Sound, Olympic (approximately 526,100 ha (1.3 million Unit, Puget Sound CHU. In April 2000, Peninsula, and Lower Columbia CHUs), ac) is west of the Cascade Crest and the City of Seattle completed an HCP, Mid-Columbia Recovery Unit (Snake includes the Olympic Peninsula and and we issued an incidental take permit River Basin, Walla Walla River Basins, southwest Washington. The remainder authorizing water withdrawal and water Yakima River, and Upper Columbia of the lands are on the east side of the supply activities affecting flows in the River CHUs), and the Columbia Cascade Range within the range of the lower Cedar River and reservoir levels northern spotted owl. The HCP covers Headwaters Recovery Unit (Clark Fork in Chester Morse Lake. The plan activities primarily associated with River Basin CHU). Beginning in late provides for forestry restoration commercial forest management. West of 1996, faced with the imminent listing of activities, including riparian thinning, the Cascade Crest, the HCP covers all several salmonid species under the Act, species, including bull trout and other road abandonment, and timber stand including bull trout, a diverse group of salmonids. On the east side of the improvement in the upper Cedar River stakeholders in Washington State agreed Cascade Crest, bull trout and other Watershed in King County. The HCP is to address emerging riparian habitat aquatic species are not covered under designed to provide adequate fish flows issues. The effort resulted in the Forests the HCP, and DNR follows State forest in the lower Cedar River for the and Fish Report (FFR) in April 1999. practice rules for riparian management spawning and rearing of several Later that year, the Washington State and other forestry activities. The DNR salmonid species, manage water levels Legislature passed the Forest Practices HCP lands on the west side of the in Chester Morse Lake and Masonry Salmon Recovery Act (Engrossed Olympic Peninsula are managed as the Dam Reservoir to benefit instream flows Substitute House Bill 2091), which Olympic Experimental State Forest. The in the lower Cedar River and bull trout directed the Washington Forest multispecies portion of the HCP spawning access to lake tributaries, and Practices Board to adopt new rules, depends upon several broad-scale manage these lands in the upper Cedar encouraging the Forest Practices Board conservation approaches: spotted owl River as an ecological reserve. Several to follow the recommendations of the conservation, marbled murrelet research actions are directed at FFR. To further the purpose of (Brachyramphus marmoratus) understanding how all life stages of bull regulatory stability, the Forest Practices conservation, riparian conservation, trout use Chester Morse Lake and Salmon Recovery Act also limited future certain species-specific protection Masonry Pool and how adult bull trout changes to the new rules so that, outside measures, protection of uncommon use tributaries to the lake for spawning. of a court order or legislative directive, habitats, and provisions to maintain a The HCP covers 83 species of fish and new rules could be adopted by the range of forest types across the HCP wildlife, including bull trout and 6 Forest Practices Board only if the landscape. other listed species. changes or new rules are consistent with

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the recommendations resulting from the covenants on PacifiCorp’s lands in the agencies to execute and perform scientifically based adaptive Cougar/Panamaker Creek area and necessary actions to carry out the management process included in the PacifiCorp and Cowlitz PUD’s lands agreement; and authorize actions and FFR. The language further solidified the along the Swift Creek arm of Swift Creek appropriations under the Snake River adaptive management process as a key Reservoir, upstream and downstream Basin Adjudication (SRBA) and the Act component of the FFR conservation fish passage improvements at all for the United States to meet its program. reservoirs, limiting factors analysis for obligations. On March 31, 2005, a Following the passage in 1999 of bull trout to determine additional Memorandum of Agreement was signed emergency forest practices rules based enhancement measures, public between the State of Idaho, Nez Perce on the FFR, the Washington Forest information program to protect bull Tribe, Service, and National Marine Practices Board adopted new permanent trout, and monitoring and evaluation Fisheries Service (NMFS) to establish a rules in May 2001. Effective July 2001, efforts for bull trout conservation process for using the habitat trust fund these rules cover a wide variety of forest measures. This agreement will also accounts for habitat protection and practices and include (1) a new, more restore anadromous salmon to the upper restoration projects in the Salmon and functional, classification of rivers and Lewis River system, restoring a Clearwater River basins in Idaho. streams on non-Federal and non-tribal significant part of the historic forage In a March 2005 letter, in response to forestland; (2) improved plans for base for bull trout. a request from the State of Idaho, the Service and NMFS provided specific properly designing, maintaining, and Snake River Basin Adjudication upgrading existing and new forest roads; information as to the standard that (3) additional protections for unstable The Service is considering excluding would be the basis for the cooperative slopes; and (4) greater protections for bull trout habitat on 18,615,000 ha (46 agreement under section 6 of the Act to riparian areas intended to restore or million ac) of lands managed under the implement the term sheet. In that letter, maintain properly functioning aquatic Snake River Basin Adjudication the two agencies indicated that meeting and riparian habitat conditions. In agreement in central Idaho. The stream the express statutory requirements in addition to these substantive provisions, flows in the basin were subject to section 6 of the Act for an adequate and the rules adopted the procedural litigation for 21 years. Litigants were the active program for the conservation of recommendations of the FFR that Federal Government, Nez Perce Tribe, the species, in this case, bull trout and address adaptive management, training, and State of Idaho. In 2004, a settlement salmon, would be required. and other features. The Washington was reached by the parties in the The Service, the National Marine State Legislature and the U.S. Congress proceeding. A Mediator’s Term Sheet Fisheries Service (NMFS), and the State continued to support the collaboration was developed to guide the settlement are in the process of developing a Draft with significant funding for the of the case, which identifies the EIS for entering into a Cooperative research, monitoring, and adaptive responsibilities of the parties over the Agreement on the Idaho Forestry management activities called for in the 30–year term of the agreement. The Program. This Program would apply to FFR. In May 2006, the State forest settlement was announced on May 15, private and State lands in the practice rules were formally 2004, by the Secretary of the Interior, Clearwater and Salmon River basins. Nez Perce Tribal Executive Committee incorporated into the Washington State The Service will evaluate whether the Chairman, and Governor of Idaho. Forest Practices HCP. Idaho Forestry Program will meet the As part of the settlement, the parties requirements of section 6 and section 7 Conservation Partnerships on Non- agreed to establish a habitat fund under of the Act. Federal Lands two separate accounts, one for the Nez At the time the negotiations on the Perce Tribe and one for the State. The adjudication were completed, the bull Lewis River Hydroelectric Project State account is managed through trout was a listed species, but critical Conservation Easements cooperative agreements under section 6 habitat had not been designated. The The Service is considering excluding of the Act, and addresses off-reservation negotiations culminating in the final 48 km (30 mi) of bull trout habitat stream flow and forestry programs. The term sheet were completed prior to associated with the Lewis River funds will be used to conduct habitat designation of critical habitat. Hydroelectric Project Conservation protection and restoration projects in Easements in the Coastal Recovery Unit, the Salmon and Clearwater River basins Tribal Lands–Exclusions under Section Columbia River Basin CHU. PacifiCorp (tributaries to the Snake River), 4(B)(2) of the Act manages four projects and three dams including programs intended to protect In accordance with the Secretarial impounding river habitat on the Lewis and restore listed fish and their habitat. Order 3206, ‘‘American Indian Tribal River in Washington, located in portions The United States will contribute $38 Rights, Federal-Tribal Trust of Clark, Cowlitz, and Skamania million to these accounts according to a Responsibilities, and the Endangered Counties. Bull trout are present in all of schedule determined by Congress in the Species Act’’ (June 5, 1997); the the reservoirs; the upper two reservoirs enacting legislation. To date, the State President’s memorandum of April 29, are used by the majority of individuals has received $5 million per year for 3 1994, ‘‘Government-to-Government within the spawning populations. A years and is expected to receive an Relations with Native American Tribal settlement agreement (Agreement) for additional $5 million for the next 2 Governments’’ (59 FR 22951); Executive the relicensing of the Yale, Merwin, years. Most of the funds have been used Order 13175; and the relevant provision Swift No. 1, and Swift No. 2 to acquire conservation easements on of the Departmental Manual of the Hydroelectric Projects was signed on lands with anadromous habitat and Department of the Interior (512 DM 2), November 30, 2004. Conservation some limited habitat restoration. we believe that fish, wildlife, and other measures are incorporated in the On December 8, 2004, the Snake River natural resources on tribal lands may be Agreement to minimize or compensate Water Rights Act of 2004 was enacted to better managed under tribal authorities, for the effects of the projects on listed resolve outstanding issues; reach a final policies, and programs than through species, including bull trout. settlement of tribal claims; authorize, Federal regulation where tribal Conservation measures for bull trout ratify, and confirm the Agreement management addresses the conservation include: perpetual conservation among the parties; direct Federal needs of listed species. Based on this

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philosophy, we believe that, in many affected in areas proposed as critical proposed as critical habitat for bull trout cases, designation of tribal lands as habitat on lands other than tribal lands. (Table 6). critical habitat may provide little For this proposed critical habitat Tribes have played a significant role additional benefit to threatened and designation for bull trout, we reviewed in the development of HCPs, local maps indicating that some areas under endangered species. In addition, such watershed plans, or other habitat plans consideration as critical habitat overlap designation may be viewed by tribes as and have conducted numerous habitat with Indian lands. Indian lands are unwarranted and an unwanted intrusion restoration and research projects those defined in the Secretarial Order into tribal self-governance, thus designed to protect or improve habitat ‘‘American Indian Tribal Rights, compromising the government-to- for listed species. If such lands are government relationship essential to Federal-Tribal Trust Responsibilities, and the Endangered Species Act’’ (June identified, the benefits of exclusion achieving our mutual goals of managing could include: (1) the furtherance of for healthy ecosystems upon which the 5, 1997), including: (1) lands held in trust by the United States for the benefit established national policies, our viability of threatened and endangered Federal trust obligations and our species populations depend. of any Indian tribe; (2) lands held in trust by the United States for any Indian deference to management of natural We will take into consideration our Tribe or individual subject to resources on their lands; (2) the partnerships and existing conservation restrictions by the United States against maintenance of effective long-term actions that tribes have or are currently alienation; (3) fee lands, either within or working relationships to promote implementing when conducting our outside the reservation boundaries, species conservation on an ecosystem- exclusion analysis in the final critical owned by the tribal government; and (4) wide basis; (3) the allowance for habitat designation. If the Secretary fee lands within the reservation continued meaningful collaboration and decides to exercise his discretion under boundaries owned by individual cooperation in scientific work to learn section 4(b)(2) of the Act, we are Indians. more about the conservation needs of considering lands covered by the tribes Our preliminary assessment indicates the species on an ecosystem-wide basis; identified below for possible exclusion that the federally-recognized tribes in and (4) continued respect for tribal from final critical habitat. We are Table 7 have lands that may include or sovereignty over management of natural requesting comments regarding these be adjacent to waterbodies under resources on Indian lands through areas and will continue to investigate consideration for designation as critical established tribal natural resource whether any Indian lands overlap, and habitat for bull trout. Based on the best programs. A list of tribal lands meeting may warrant exclusion from, critical available information, there are the criteria of a tribal management or habitat for bull trout. We also request approximately 683 kilometers (424 conservation plan, with proposed comments and information concerning miles) of streams and shoreline areas in critical habitat unit and water body other tribal activities that may be or adjacent to Tribal lands being name, follows in Table 7.

TABLE 7.—TRIBAL LANDS MEETING THE CRITERIA OF A TRIBAL MANAGEMENT OR CONSERVATION PLAN AND THE PROPOSED CRITICAL HABITAT UNIT AND WATER BODY AFFECTED

Tribal Nation Critical habitat unit Stream/water body name

Confederated Tribes of Warm Springs Deschutes River Basin Deschutes River, Shitike Creek, Jefferson Creek, Warm Springs River, Metolius River

Confederated Tribes of the Umatilla Umatilla River and Walla Walla Umatilla River, South Fork Touchet River, Meacham Creek, River Basin Squaw Creek

Burns Paiute Tribe Malheur River Basin Malheur River

Nez Perce Tribe Clearwater River Mainstem, North Fork, Middle Fork, and South Fork Clearwater River, Lolo Creek, Clear Creek, and Dworshak Reservoir

Coeur d’Alene Tribe Coeur d’Alene River Basin Lake Coeur d’Alene and tributaries

Blackfeet Nation Saint Mary River Basin Saint Mary River

Confederated Salish and Kootenai Clark Fork River Basin Flathead Lake, Lower Flathead River, Jocko River, Mission Tribes Creek, Post Creek

Kalispel Tribe Clark Fork River Basin Pend Oreille River

Yakama Nation Yakima and Lower Columbia Yakima River, Ahtanum Creek, and South Fork Ahtanum Creek, River Basins West Fork Klikitat River, Little Muddy Creek, Crawford Creek, Clearwater Creek, Trappers Creek, Fish Lake Stream, unnamed tributary that meets Fish Lake Stream, and Two Lakes Stream

Confederated Tribes of the Chehalis Olympic Peninsula Chehalis River

Hoh Tribe Olympic Peninsula Hoh River and Pacific Coast nearshore

Jamestown S’Klallam Tribe Olympic Peninsula Dungeness River

Lower Elwha Klallam Tribe Olympic Peninsula Elwha River and Strait of Juan De Fuca Nearshore

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TABLE 7.—TRIBAL LANDS MEETING THE CRITERIA OF A TRIBAL MANAGEMENT OR CONSERVATION PLAN AND THE PROPOSED CRITICAL HABITAT UNIT AND WATER BODY AFFECTED—Continued

Tribal Nation Critical habitat unit Stream/water body name

Quileute Tribe Olympic Peninsula Pacific Coast Nearshore

Quinault Nation Olympic Peninsula Quinault River, Lake Quinault, Pacific Coast nearshore, Raft River, Queets River, Salmon River, Moclips River, and Cook Creek

Skokomish Tribe Olympic Peninsula Skokomish River, Nalley Slough, Skobob Creek, and Hood Canal nearshore

Lummi Nation Puget Sound Nooksack River and Puget Sound nearshore

Muckleshoot Tribe Puget Sound White River

Nisqually Tribe Puget Sound Nisqually River

Nooksack Tribe Puget Sound Nooksack River

Puyallup Tribe Puget Sound Puyallup River and Puget Sound nearshore

Sauk-Suiattle Tribe Puget Sound Sauk River

Swinomish Tribe Puget Sound Swinomish Channel and Puget Sound nearshore

Tulalip Tribes Puget Sound Puget Sound nearshore

Federal Lands-Exclusions under Section based upon the best scientific data beyond the baseline costs; these are the 4(B)(2) of the Act available, after taking into consideration costs we may consider in the final As noted above, Federal agencies have the economic impact, impact on designation of critical habitat. The an independent responsibility under national security, or any other relevant analysis looks retrospectively at section 7(a)(1) of the Act to use their impact of specifying any particular area baseline impacts incurred since the programs in furtherance of the Act and as critical habitat. species was listed, and forecasts both to utilize their authorities to carry out We have prepared a Draft Economic baseline and incremental impacts likely programs for the conservation of Analysis (DEA), which identifies and to occur if we finalize the proposed endangered and threatened species. We analyzes the potential economic impacts critical habitat designation. consider the development and associated with the proposed The DEA estimates impacts based on implementation of land management designation of critical habitat for bull activities that are reasonably plans by Federal agencies to be trout. The DEA quantifies the economic foreseeable, including, but not limited consistent with this statutory obligation impacts of all potential conservation to, activities that are currently under section 7(a)(1) of the Act. efforts for bull trout; some of these costs authorized, permitted, or funded, or for Therefore, Federal land management would likely be incurred regardless of which proposed plans are currently plans, in and of themselves, are whether or not we designate critical available to the public. The DEA generally not an appropriate basis for habitat. The economic impact of the provides estimated costs of the excluding essential habitat. Some broad- proposed critical habitat designation is foreseeable potential economic impacts scale Federal resource management analyzed by comparing scenarios both of the proposed critical habitat plans (e.g., INFISH, PACFISH, and the ‘‘with critical habitat’’ and ‘‘without designation for bull trout over the next Northwest Forest Plan) may provide critical habitat.’’ The ‘‘without critical 20 years, which was determined to be conservation benefits to bull trout as habitat’’ scenario represents the baseline the appropriate period for analysis well as all other aquatic species within for the analysis, considering protections because limited planning information the plan boundaries. In addition, in already in place for the species (e.g., was available for most activities to some places, Federal land management under the Federal listing and other reasonably forecast activity levels for agencies may actively manage for bull Federal, State, and local regulations). projects beyond a 20–year timeframe. trout and conduct specific conservation The baseline, therefore, represents the The DEA identifies potential actions for the species. We are therefore costs incurred regardless of whether incremental costs as a result of the requesting comments regarding existing critical habitat is designated. The ‘‘with proposed critical habitat designation; specific conservation actions that critical habitat’’ scenario describes the these are those costs attributed to Federal land management agencies have incremental impacts associated critical habitat over and above those or are currently implementing on their specifically with the designation of baseline costs attributed to listing. The lands, and will take this information critical habitat for the species. The DEA quantifies economic impacts of into account when conducting our incremental conservation efforts and conservation efforts for bull trout exclusion analysis in the final critical associated impacts are those not associated with the following categories habitat designation. expected to occur absent the designation of activity: (1) forest management of critical habitat for the species. In practices (timber sales, fuel reduction, Draft Economic Analysis other words, the incremental costs are salvage logging); (2) residential and Section 4(b)(2) of the Act requires that those attributable solely to the commercial development; (3) dams we designate or revise critical habitat designation of critical habitat above and (hydropower and others); (4) agriculture

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and agricultural diversions; (5) roads; imposed on dam operations account for temperature control projects, and (6) mining; (7) livestock grazing; and (8) 18 percent of estimated baseline impacts seasonal changes to flow. Estimated other activities (utilities, restoration, under the high cost scenario. These incremental costs associated with forest nonnative species management, costs result from projected conservation management projects range from $0.41 recreation, other instream activities). efforts, including providing fish passage million to $1.65 million annually, Of the currently proposed critical (fish ladder or trap and haul operations), associated with efforts to reduce habitat areas, nearly 31,865 km (19,800 temperature control projects, habitat sedimentation, timing restrictions, mi), or 87 percent, were previously acquisition, and seasonal adjustments of elimination of fish barriers (e.g., proposed as bull trout critical habitat. flow. culverts), and changes to harvest Two detailed economic analyses of Because of all conservation measures methods. those past proposals were conducted in in place for salmon, steelhead, the Estimated incremental costs 2004 and 2005. Both of these analyses Klamath suckers, and other protected associated with additional section 7 were made available for, and received, fish species, we believe the incremental administrative efforts (Federal agency public comment. Due to extensive regulatory and economic effect of consultations) are expected to be $1.99 overlap between the current proposed critical habitat designation in areas million annually. Absent reasonably critical habitat and the past proposals, occupied by bull trout will be small, foreseeable economic impacts that are the economic analysis prepared for this and the most significant incremental distinctly attributable to the critical proposal draws heavily on still-valid effect will be in those areas not habitat portion of the analysis, economic impacts from conservation data contained within the two prior currently occupied (less than 4 percent economic analyses. Costs associated efforts that avoid adverse modification of the proposed critical habitat) by the with bull trout conservation efforts of critical habitat coincidental to species. As a result, the DEA estimates estimated in the earlier economic avoiding jeopardizing the species would that total potential incremental analyses have been updated to current be coextensive with the impacts of bull economic impacts in areas proposed as dollars, adjusted to reflect the currently trout listing and within the regulatory critical habitat over the next 20 years proposed unit boundaries, and reported baseline. will be $4.97 million to $7.13 million to provide context for the reported Benefits, as well as costs, can result annually (assuming a 7 percent discount incremental costs associated with the from critical habitat designation. Bull rate); the range of costs represents currently proposed critical habitat trout conservation efforts for critical uncertainty in the types and costs of designation. habitat may lead to improved water Total future (2012-2032) baseline project modifications. The majority of quality, increased open space, flood impacts are estimated to be $96.3 forecast incremental costs are associated control, or aesthetic benefits. Indirect million to $103.0 million annually with unoccupied critical habitat in the use benefits may also result (e.g., (assuming a 7 percent discount rate); Upper Willamette River Basin, and are increased hiking or wildlife-viewing discount rates express future costs and associated with conservation efforts activities). Conservation efforts for bull benefits at today’s equivalent value. undertaken at flood control facilities. trout critical habitat have the potential This estimate includes not only For unoccupied areas overlapping with to result in increased bull trout conservation activity costs resulting previous bull trout critical habitat populations, which in turn could result from the bull trout being listed under proposals, cost estimates are drawn in increases in recreational fishing the Act, but also estimated costs of from the previous economic analyses opportunities over the long term. In related conservation activities for and assigned to the critical habitat units addition, increased bull trout salmon, steelhead, and other fish proposed in this rule. For newly population size could result in species, along with water quality and proposed unoccupied areas, the analysis enhanced non-use value by the public habitat protection, in overlapping areas focuses on identifying additional (e.g., existence value). Existing studies where other protected species occur conservation efforts that may be support the conclusion that preservation with bull trout. Under the baseline expected as a result of critical habitat of fish species in general is likely to scenario, nearly half of all estimated designation for bull trout. The 116 km generate substantial benefits to the costs are due to conservation efforts (72 mi) of newly proposed unoccupied public. However, absent information on imposed on forest management critical habitat that is already designated the long term biological or physical activities. Costs imposed on as critical habitat for listed salmon were changes expected to occur in bull trout development activities and dam not included in the incremental critical habitat areas as a result of operations make up most of the analysis. Existing (baseline) critical habitat designation, the DEA remaining estimated costs. Costs conservation efforts required in does not quantify these benefits. associated with project modifications to designated salmon critical habitat areas The DEA is available for review at forest management activities account for would generally be adequate to address http://www.regulations.gov. We are nearly 44 percent of estimated baseline bull trout conservation needs, and no seeking data and comments from the impacts. These costs are expected to be significant additional conservation public on the DEA, as well as all aspects associated with conservation measures efforts are expected to be necessary. of the proposed rule and our amended imposed on timber harvest activities, Dam operations are expected to incur required determinations. We may revise including efforts to reduce the greatest incremental economic the proposed rule or supporting sedimentation timing restrictions, impacts, followed by forest management documents to incorporate or address elimination of fish barriers, and changes and administrative costs. Estimated information we receive during the to harvest methods. Under the high cost incremental costs associated with dam public comment period, including scenario, costs associated with project project modifications range from $2.12 information received during, or in modifications imposed on development million to $2.52 million annually, and response to, the public hearing. activities account for 25 percent of are primarily related to conservation projected baseline impacts. These costs efforts in the Upper Willamette River Peer Review result from implementation of Basin. Project modifications could In accordance with our joint policy stormwater control requirements. Costs include fish passage (such as fish published in the Federal Register on associated with project modifications ladders and trap and haul operations), July 1, 1994 (59 FR 34270), we will seek

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the expert opinions of at least three publish a notice of rulemaking for any designations of limited extent, we may appropriate and independent specialists proposed or final rule, it must prepare aggregate across all industries and regarding this proposed rule. The and make available for public comment consider whether the total number of purpose of peer review is to ensure that a regulatory flexibility analysis that small entities affected is substantial. In our critical habitat designation is based describes the effects of the rule on small estimating the number of small entities on scientifically sound data, entities (small businesses, small potentially affected, we also consider assumptions, and analyses. We have organizations, and small government whether their activities have any invited these peer reviewers to comment jurisdictions). However, no regulatory Federal involvement. during this public comment period on flexibility analysis is required if the Under the Act, designation of critical our specific assumptions and head of the agency certifies the rule will habitat only affects activities carried conclusions in this proposed not have a significant economic impact out, funded, or permitted by Federal designation of critical habitat. on a substantial number of small agencies. Some kinds of activities are We will consider all comments and entities. The SBREFA amended RFA to unlikely to have any Federal information we receive during this require Federal agencies to provide a involvement and so would not result in comment period on this proposed rule statement of the factual basis for any additional effects under the Act. during our preparation of a final certifying that the rule will not have a However, there are some state laws that determination. Accordingly, the final significant economic impact on a limit activities in designated critical decision may differ from this proposal. substantial number of small entities. habitat even where there is no federal Small entities include small nexus. If there is a Federal nexus, Public Hearings organizations, such as independent Federal agencies will be required to The Act provides for one or more nonprofit organizations; small consult with us under section 7 of the public hearings on this proposal, if governmental jurisdictions, including Act on activities they fund, permit, or requested. Requests must be received school boards and city and town carry out that may affect critical habitat. within 45 days after the date of governments that serve fewer than If we conclude, in a biological opinion, publication of this proposed rule in the 50,000 residents; as well as small that a proposed action is likely to Federal Register. Such requests must be businesses. Small businesses include destroy or adversely modify critical sent to the address shown in the manufacturing and mining concerns habitat, we can offer ‘‘reasonable and ADDRESSES section. In anticipation of with fewer than 500 employees, prudent alternatives.’’ Reasonable and the interest in this proposed rule, we wholesale trade entities with fewer than prudent alternatives are alternative have already scheduled the public 100 employees, retail and service actions that can be implemented in a hearing and several public meetings. businesses with less than $5 million in manner consistent with the scope of the See the DATES and ADDRESSES section annual sales, general and heavy Federal agency’s legal authority and of this proposed rule for information construction businesses with less than jurisdiction, that are economically and regarding the scheduled public hearing $27.5 million in annual business, technologically feasible, and that would and public meetings. special trade contractors doing less than avoid destroying or adversely modifying $11.5 million in annual business, and critical habitat. Required Determinations agricultural businesses with annual A Federal agency and an applicant Regulatory Planning and Review— sales less than $750,000. To determine may elect to implement a reasonable Executive Order 12866 whether potential economic impacts to and prudent alternative associated with these small entities are significant, we a biological opinion that has found The Office of Management and Budget consider the types of activities that adverse modification of critical habitat. (OMB) has determined that this rule is might trigger regulatory impacts under An agency or applicant could significant and has reviewed this this rule, as well as the types of project alternatively choose to seek an proposed rule under Executive Order modifications that may result. In exemption from the requirements of the 12866 (E.O. 12866). OMB based its general, the term ‘‘significant economic Act or proceed without implementing determination upon the following four impact’’ is meant to apply to a typical the reasonable and prudent alternative. criteria: small business firm’s business However, unless an exemption were (1) Whether the rule will have an operations. obtained, the Federal agency or annual effect of $100 million or more on To determine whether a designation applicant would be at risk of violating the economy or adversely affect an of critical habitat could significantly section 7(a)(2) of the Act if it chose to economic sector, productivity, jobs, the affect a substantial number of small proceed without implementing the environment, or other units of the entities, we consider the number of reasonable and prudent alternatives. We government; small entities affected within particular may also identify discretionary (2) Whether the rule will create types of economic activities (e.g., conservation recommendations inconsistencies with other Federal housing development, grazing, oil and designed to minimize or avoid the agencies’ actions; gas production, timber harvesting). We adverse effects of a proposed action on (3) Whether the rule will materially apply the ‘‘substantial number’’ test critical habitat, help implement affect entitlements, grants, user fees, individually to each industry to recovery plans, or to develop loan programs, or the rights and determine if certification is appropriate. information that could contribute to the obligations of their recipients; or However, the SBREFA does not recovery of the species. (4) Whether the rule raises novel legal explicitly define ‘‘substantial number’’ Within the proposed critical habitat or policy issues. or ‘‘significant economic impact.’’ designation, the types of actions or Consequently, to assess whether a authorized activities that we have Regulatory Flexibility Act ‘‘substantial number’’ of small entities is identified as potential concerns and that Under the Regulatory Flexibility Act affected by this designation, this may be subject to consultation under (RFA) (5 U.S.C. 601 et seq., as amended analysis considers the relative number section 7 if there is a Federal nexus are: by the Small Business Regulatory of small entities likely to be impacted in operation of dams; forest management Enforcement Fairness Act (SBREFA) of an area. In some circumstances, practices; livestock grazing; agriculture 1996), whenever an agency must especially with critical habitat and irrigation diversions; management

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of roads; mining; and management of annual receipts; and Food Unfunded Mandates Reform Act nonnative species. Manufacturing–500 employees. In accordance with the Unfunded Any existing and planned projects, • Grazing Category: Beef Cattle Mandates Reform Act (2 U.S.C. 1501 et land uses, and activities that could Ranching and Farming–$750,000 seq.), we make the following findings: affect the proposed critical habitat but average annual receipts. (a) This rule will not produce a have no Federal involvement would not • Roads Category: Highway, Street and Federal mandate. In general, a Federal require section 7 consultation with the mandate is a provision in legislation, Bridge Construction–$33.5 million Service, so they are not restricted by the statute, or regulation that would impose average annual receipts. requirements of the Act. Federal an enforceable duty upon State, local, or agencies may need to reinitiate a • Development Category: New Single– Tribal governments, or the private previous consultation if discretionary Family Housing Construction (except sector, and includes both ‘‘Federal involvement or control over the Federal Operative Builders); New Multifamily intergovernmental mandates’’ and action has been retained or is authorized Housing Construction (except Operative ‘‘Federal private sector mandates.’’ by law and the activities may affect Builders); New Housing Operative These terms are defined in 2 U.S.C. critical habitat. Builders–$33.5 million average annual 658(5)-(7). ‘‘Federal intergovernmental The DEA and its associated Initial receipts; and Land Subdivision–$7.0 ’’ Regulatory Flexibility Analysis (IRFA) mandate includes a regulation that million. ‘‘ estimate that total potential incremental would impose an enforceable duty economic impacts in areas proposed as • Forest Managent Category: Logging– upon State, local, or Tribal ’’ critical habitat over the next 20 years 500 employees; Timber Tract governments with two exceptions. It will be $4.97 to $7.13 million annually, Operations, and Support Activities for excludes ‘‘a condition of Federal assuming a 7 percent discount rate. Forestry–$7.0 million average annual assistance.’’ It also excludes ‘‘a duty Incremental impacts are expected to receipts. arising from participation in a voluntary Federal program,’’ unless the regulation consist of: (1) project modifications • Mining Category: Mining (except Oil occurring within newly proposed ‘‘relates to a then-existing Federal and Gas), and Construction Sand and program under which $500,000,000 or unoccupied areas; and (2) Gravel Mining–500 employees. administrative costs associated with more is provided annually to State, • consultations under section 7 of the Act. Other Activities Category: Oil and local, and Tribal governments under In total, third parties (some of which Gas Pipeline and Related Structures entitlement authority,’’ if the provision may be small entities) may bear a total Construction; Power and would ‘‘increase the stringency of annual impact of up to $5.6 million in Communication Line and Related conditions of assistance’’ or ‘‘place caps incremental impacts. In unoccupied Structures Construction; and Other upon, or otherwise decrease, the Federal areas, project modifications may be Heavy and Civil Engineering Government’s responsibility to provide associated with dam modifications, Construction–$33.5 million average funding,’’ and the State, local, or Tribal bridge replacement, grazing lease annual receipts; Marinas–$7.0 million governments ‘‘lack authority’’ to adjust modification, road maintenance, and average annual receipts; Water and accordingly. At the time of enactment, changes to timber harvest. In total, Sewer Line and Related Structures these entitlement programs were: annual incremental costs associated Construction–$33.5 million average Medicaid; Aid to Families with with project modifications are forecast annual receipts; and Sewage Treatment Dependent Children work programs; at $5.1 million (discounted at 7 Facilities–$7.0 million average annual Child Nutrition; Food Stamps; Social percent). The DEA also forecasts the receipts. Services Block Grants; Vocational number of additional section 7 Rehabilitation State Grants; Foster Care, If each of the 23,800 small entities Adoption Assistance, and Independent consultations that may take place as a located within the study area were to result of critical habitat. Based on this Living; Family Support Welfare share the annualized costs, they could forecast, annual incremental Services; and Child Support bear from $0 up to $60,300 per entity, consultation costs that may be borne by Enforcement. ‘‘Federal private sector depending on the affected industry. third parties are forecast at $441,000 in mandate’’ includes a regulation that total (discounted at 7 percent). Of the This would translate into an annual ‘‘would impose an enforceable duty potentially affected entities in the average cost of $234 per entity. This in upon the private sector, except (i) a proposed critical habitat areas, 97 turn translates into a projected range of condition of Federal assistance or (ii) a percent are small entities, and impacts from 0.0007 to 0.03 percent, or duty arising from participation in a depending on the unit, small entities in other words, less than 1 percent voluntary Federal program.’’ may bear between 93 and 100 percent of impact for all sectors. The expected The designation of critical habitat the estimated impacts. The Small annual impacts to the affected does not impose a legally binding duty Business Size Standard for the industry industries are significantly less than the on non-Federal government entities or sectors that could potentially be affected annual revenues that could be garnered private parties. Under the Act, the only by the proposed critical habitat by a single small operator in those regulatory effect is that Federal agencies designation are as follows: industries, and as such, impacts are low must ensure that their actions do not • Dams and Water Diversions relative to potential revenues. We are destroy or adversely modify critical Category: Electric Power Generation, seeking public comments regarding the habitat under section 7. While non- Transmission and Distribution–4 estimated incremental impacts of this Federal entities that receive Federal million megawatts for the preceding critical habitat designation on small funding, assistance, or permits, or that year, and Water supply and Irrigation entities. Specifically, we are interested otherwise require approval or Systems–$7.0 million average annual in whether there is evidence suggesting authorization from a Federal agency for receipts. that the economic impact of section an action, may be indirectly impacted • Agriculture Category: Crop 7(a)(2) consultations in areas currently by the designation of critical habitat, the Production (Oilseed and Grain Farming; occupied by the species is expected to legally binding duty to avoid Vegetable and Melon Farming; and Fruit be larger or smaller than estimated in destruction or adverse modification of and Tree Nut Farming–$750,000 average this analysis. critical habitat rests squarely on the

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Federal agency. Furthermore, to the the species are more clearly defined, published a notice outlining our reasons extent that non-Federal entities are and the physical and biological features for this determination in the Federal indirectly impacted because they of the habitat necessary to the Register on October 25, 1983 (48 FR receive Federal assistance or participate conservation of the species are 49244). This position was upheld by the in a voluntary Federal aid program, the specifically identified. This information U.S. court of Appeals for the Ninth Unfunded Mandates Reform Act would does not alter where and what federally Circuit (Douglas County v. Babbitt, 48 not apply, nor would critical habitat sponsored activities may occur. F.3d 1495 (9th Cir. 1995), cert. denied shift the costs of the large entitlement However, it may assist local 516 U.S. 1042 (1996)).] programs listed above onto State governments in long-range planning governments. (rather than having them wait for case- Clarity of the Rule (b) As discussed in the DEA of the by-case section 7 consultations to We are required by Executive Orders proposed designation of critical habitat occur). 12866 and 12988 and by the for bull trout, we do not believe that this Where State and local governments Presidential Memorandum of June 1, rule would significantly or uniquely require approval or authorization from a 1998, to write all rules in plain affect small governments because it Federal agency for actions that may language. This means that each rule we would not produce a Federal mandate of affect critical habitat, consultation publish must: $100 million or greater in any year; that under section 7(a)(2) of the Act would (a) Be logically organized; is, it is not a ‘‘significant regulatory be required. While non-Federal entities (b) Use the active voice to address action’’ under the Unfunded Mandates that receive Federal funding, assistance, readers directly; Reform Act. The DEA concludes that or permits, or that otherwise require (c) Use clear language rather than incremental impacts may occur due to approval or authorization from a Federal jargon; project modifications occurring within agency for an action, may be indirectly (d) Be divided into short sections and newly proposed, unoccupied areas and impacted by the designation of critical sentences; and administrative costs associated with habitat, the legally binding duty to (e) Use lists and tables wherever section 7 consultations. The DEA avoid destruction or adverse possible. estimates that total potential modification of critical habitat rests If you feel that we have not met these incremental economic impacts in areas squarely on the Federal agency. requirements, send us comments by one proposed as critical habitat over the of the methods listed in the ‘‘ADDRESSES’’ next 20 years will be $4.97 to $7.13 Civil Justice Reform section. To better help us revise the million annually, assuming a 7 percent In accordance with E.O. 12988 (Civil rule, your comments should be as discount rate. Based on the range of Justice Reform), the Office of the specific as possible. For example, you potential incremental costs that have Solicitor has determined that the rule should tell us the names of the sections been identified, we do not believe that does not unduly burden the judicial or paragraphs that are unclearly written, this rule will significantly or uniquely system and that it meets the which sections or sentences are too affect small government entities. As requirements of sections 3(a) and 3(b)(2) long, the sections where you feel lists or such, a Small Government Agency Plan of the Executive Order. We have tables would be useful, etc. is not required. proposed designating critical habitat in Government-to-Government accordance with the provisions of the Takings Relationship with Tribes Act. This proposed rule uses standard In accordance with Executive Order property descriptions and identifies the Our preliminary assessment indicates (E.O.) 12630 (Government Actions and physical and biological features within that 24 Federally-recognized Tribes in Interference with Constitutionally the designated areas to assist the public Table 7 have lands that may include or Protected Private Property Rights), we in understanding the habitat needs of be adjacent to waterbodies under have analyzed the potential takings the bull trout. consideration for designation as critical implications of designating critical habitat for bull trout. Based on the best habitat for bull trout in a takings Paperwork Reduction Act of 1995 available information, there are implications assessment. The takings This rule does not contain any new approximately 683 kilometers (424 implications assessment concludes that collections of information that require miles) of streams and shoreline areas in this designation of critical habitat for approval by OMB under the Paperwork or adjacent to Tribal lands being bull trout does not pose significant Reduction Act of 1995 (44 U.S.C. 3501 proposed as critical habitat for bull trout takings implications for lands within or et seq.). This rule will not impose (Table 6). affected by the designation. recordkeeping or reporting requirements In accordance with the President’s on State or local governments, memorandum of April 29, 1994, Federalism individuals, businesses, or Government-to-Government Relations In accordance with E.O. 13132 organizations. An agency may not with Native American Tribal (Federalism), this proposed rule does conduct or sponsor, and a person is not Governments (59 FR 22951), E.O. 13175, not have significant federalism effects. required to respond to, a collection of and the Department of the Interior’s A federalism assessment is not required. information unless it displays a manual at 512 DM 2, we readily In keeping with Department of the currently valid OMB control number. acknowledge our responsibility to Interior and Department of Commerce communicate meaningfully with policy, we requested information from, National Environmental Policy Act recognized Federal Tribes on a and coordinated development of, this It is our position that, outside the government-to-government basis. In proposed critical habitat designation jurisdiction of the U.S. Court of Appeals accordance with Secretarial Order 3206 with appropriate State resource agencies for the Tenth Circuit, we do not need to of June 5, 1997 ‘‘American Indian Tribal in Washington, Oregon, Idaho, Montana, prepare environmental analyses as Rights, Federal-Tribal Trust and Nevada. The designation may have defined by National Environmental Responsibilities, and the Endangered some benefit to these governments Policy Act (NEPA) (42 U.S.C. 4321 et Species Act’’, we readily acknowledge because the areas that contain the seq.) in connection with designating our responsibilities to work directly features essential to the conservation of critical habitat under the Act. We with Tribes in developing programs for

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healthy ecosystems, to acknowledge that compared with the regulatory action will further evaluate this issue as we tribal lands are not subject to the same under consideration. Two of these conduct our economic analysis, and controls as Federal public lands, to criteria are relevant to the bull trout review and revise this assessment as remain sensitive to Indian culture, and economic analysis: (1) reduction in warranted. to make information available to Tribes. electricity production in excess of one References Cited Maintaining an effective trust billion kilowatts-hours per year or in relationship between the Federal excess of 500 megawatts of installed A complete list of references cited is government and Tribes promotes (1) the capacity and (2) increases in the cost of available on the Internet at http:// furtherance of established national energy production in excess of one www.regulations.gov and upon request policies, our Federal trust obligations percent. The two primary activities that from the Idaho Fish and Wildlife Office and our deference to management of might lead to reduced energy generation (see FOR FURTHER INFORMATION CONTACT). natural resources on their lands; (2) the are operation of the Federal Columbia maintenance of effective long-term River Power System (FCRPS) and Author(s) working relationships to promote operation of FERC-licensed The primary authors of this package species conservation on an ecosystem- hydroelectric dams. Incremental are the staff members of the following wide basis; (3) the allowance for impacts to dam operations are expected Fish and Wildlife Offices: Idaho, continued meaningful collaboration and to consist largely of the costs of Montana, Washington, Oregon, Nevada, cooperation in scientific work to learn installing fish passage capabilities. and Klamath Falls. more about the conservation needs of Some dam operators may also undertake the species on an ecosystem-wide basis; relatively minor movements of peak List of Subjects in 50 CFR Part 17 and (4) continued respect for Tribal energy production during the year. This Endangered and threatened species, sovereignty over management of natural practice does not reduce average energy Exports, Imports, Reporting and resources on Indian lands through production, but rather changes the recordkeeping requirements, established tribal natural resource temporal distribution of that power. Transportation. programs. We have engaged in Therefore, no impacts to electricity preliminary discussions and production or installed capacity are Proposed Regulation Promulgation coordination with our Tribal partners forecast. Given the high thresholds during development of the proposed defined in the OMB guidance (i.e., Accordingly, we propose to amend rule, and are soliciting specific reduction in electricity production in part 17; subchapter B of Chapter I, title comments and information from tribes excess of one billion kilowatts-hours per 50 of the Code of Federal Regulations as on areas being proposed as critical year, increases in the cost of energy set forth below: habitat on tribal land and on lands other production in excess of one percent) PART 17—[AMENDED] than Tribal lands. The final rule will and the fact that bull trout is unlikely fully consider the Federal government’s to be the primary species leading to 1. The authority citation for part 17 obligations to Federally-recognized changes in flow regimes (because of the continues to read as follows: Tribes, and comments and information presence of listed salmon), it is unlikely Authority: 16 U.S.C. 1361-1407; 16 U.S.C. received from the Tribes regarding the the electricity industry will experience 1531-1544; 16 U.S.C. 4201-4245; Pub. L. 99- actions being implemented to conserve a ‘‘significant adverse effect’’ as a result 625, 100 Stat. 3500; unless otherwise noted. bull trout on Tribal lands and lands of critical habitat designation for bull other than Tribal lands. trout. The protection of bull trout stream 2. Amend § 17.95(e) by revising and lake habitats should not require critical habitat for ‘‘Bull Trout Energy Supply, Distribution, or Use significant changes to energy (Salvelinus confluentus)’’ as follows: Executive Order E.O. 13211 pertains management, and because bull trout § 17.95 Critical habitat—fish and wildlife. to regulations that significantly affect have been listed under the Endangered energy supply, distribution, and use. Species Act for the past 10 years, with * * * * * E.O. 13211 requires agencies to prepare critical habitat designated over parts of (e) Fishes. Statements of Energy Effects when its range for the past four years, and * * * * * undertaking certain actions. The Office there have been no actions that have Bull trout (Salvelinus confluentus) of Management and Budget (OMB) significantly affected energy supply, provides guidance for implementing distribution or use over that time. (1) Locations of critical habitat: this Executive Order, outlining nine Therefore, this action is not a significant Critical habitat units are depicted in the outcomes (criteria) that may constitute energy action, and no Statement of following States and counties on the ‘‘a significant adverse effect’’ when Energy Effects is required. However, we maps and as described below:

State Counties

(i) Idaho Adams, Benewah, Blaine, Boise, Bonner, Boundary, Butte, Camas, Canyon, Clearwater, Custer, Elmore, Gem, Idaho, Kootenai, Lemhi, Lewis, Nez Perce, Owyhee, Shoshone, Valley, Washington

(ii) Montana Deer, Lodge, Flathead, Glacier, Granite, Lake, Lewis and Clark, Lincoln, Mineral, Missoula, Powell, Ravalli, Sanders

(iii) Nevada Elko

(iv) Oregon Baker, Clatsop, Columbia, Deschutes, Gilliam, Grant, Harney, Hood River, Jefferson, Klamath, Lake, Lane, Linn, Malheur, Morrow, Multnomah, Sherman, Umatilla, Union, Wallowa, Wasco, Wheeler

(v) Washington Asotin, Benton, Chelan, Clallam, Clark, Columbia, Cowlitz, Douglas, Franklin, Garfield, Grant, Grays Harbor, Island, Jefferson, King, Kittitas, Klickitat, Mason, Okanogan, Pend Oreille, Pierce, Skagit, Skamania, Snohomish, Thurston, Wahkiakum, Walla Walla, Whatcom, Whitman, Yakima

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(2) Topographic features included in levels). This equates to the average life-history stage and form; geography; the critical habitat designation. Critical depth of the photic zone and is elevation; diurnal and seasonal habitat includes the stream channels consistent with the offshore extent of variation; shade, such as that provided within the designated stream reaches; the nearshore habitat identified National by riparian habitat; and local designated lakes and reservoirs; and Oceanic and Atmospheric groundwater influence. inshore portions of marine nearshore Administration in the National Tidal (vi) Substrates of sufficient amount, areas, including tidally influenced Datum 1983 Through 2001. This area size, and composition to ensure success freshwater heads of estuaries indicated between the MHHW line and minus 10 of egg and embryo overwinter survival, on the maps beginning with paragraph MLLW line is considered the habitat fry emergence, and young-of-the-year (e)(6) of this section. most consistently used by bull trout in and juvenile survival. A minimal (i) Critical habitat includes the stream marine waters based on known use, amount (e.g., less than 12 percent) of channels within the designated stream forage fish availability, and ongoing fine substrate less than 0.85 mm (0.03 reaches and a lateral extent as defined migration studies and captures in.) in diameter and minimal by the bankfull elevation on one bank to geological and ecological processes embeddedness of these fines in larger the bankfull elevation on the opposite important to maintaining these habitats. substrates are characteristic of these bank. Bankfull elevation is the level at This area contains essential foraging conditions. which water begins to leave the channel habitat and migration corridors such as (vii) A natural hydrograph, including and move into the floodplain and is estuaries, bays, inlets, shallow subtidal peak, high, low, and base flows within reached at a discharge that generally has areas, and intertidal flats. historic and seasonal ranges or, if flows a recurrence interval of 1 to 2 years on (3) The Primary Constituent Elements are controlled, they minimize the annual flood series. If bankfull (PCEs) of critical habitat. Within the departures from a natural hydrograph. elevation is not evident on either bank, critical habitat, the PCEs for bull trout (viii) Sufficient water quality and the ordinary high-water line must be are those habitat components that are quantity such that normal reproduction, used to determine the lateral extent of essential for the primary biological growth, and survival are not inhibited. critical habitat. The lateral extent of needs of foraging, reproducing, rearing (ix) Few or no nonnative predatory designated lakes is defined by the of young, dispersal, genetic exchange, or (e.g., lake trout, walleye, northern pike, perimeter of the water body as mapped sheltering. The PCEs are as follows: smallmouth bass; inbreeding (e.g., brook on standard 1:24,000 scale topographic (i) Springs, seeps, groundwater trout); or competitive (e.g., brown trout) maps. sources, and subsurface water species present. (ii) Critical habitat includes the connectivity (hyporehic flows) to (4) Critical habitat does not include inshore extent of critical habitat for contribute to water quality and quantity manmade structures (such as buildings, marine nearshore areas (the mean higher and provide thermal refugia. aqueducts, runways, roads, and other high-water (MHHW) line), including (ii) Migratory habitats with minimal paved areas) and the land on which they tidally influenced freshwater heads of physical, biological, or water quality are located existing within the legal estuaries. The MHHW line refers to the impediments between spawning, boundaries on the effective date of this average of all the higher high-water rearing, overwintering, and freshwater rule. heights of the two daily tidal levels. and marine foraging habitats, including (5) Critical habitat map units. Data Adjacent shoreline riparian areas, bluffs, but not limited to permanent, partial, layers defining map units were created and uplands are not designated as intermittent, or seasonal barriers. using U.S. Geological Survey (USGS) critical habitat. However, it should be (iii) An abundant food base, including Hydrologic Unit Code maps (HUCs) at a recognized that the quality of marine terrestrial organisms of riparian origin, scale of 1:250,000 down to the 4th level habitat along shorelines is intrinsically aquatic macroinvertebrates, and forage cataloging unit. In some cases, 5th and related to the character of these adjacent fish. 6th level HUCs were also used and some features, and human activities that (iv) Complex river, stream, lake, finer scale watersheds developed using occur outside of the MHHW line can reservoir, and marine shoreline aquatic United States Geological Survey 10- have major effects on physical and environments and processes with meter Digital Elevation Model and biological features of the marine features such as large wood, side 1:24,000 scale hydrography layers. The environment. The offshore extent of channels, pools, undercut banks and marine boundaries for the Puget Sound critical habitat for marine nearshore substrates, to provide a variety of and Olympic Peninsula critical habitat areas is based on the extent of the photic depths, gradients, velocities, and unit (CHU) were based on Washington zone, which is the layer of water in structure. Department of Natural Resources which organisms are exposed to light. (v) Water temperatures ranging from 2 1:24,000 scale county boundaries and Critical habitat extends offshore to the to 15 °C (36 to 59 °F), with adequate HUCs. depth of 10 meters (m) (33 feet (ft)) thermal refugia available for relative to the mean low low-water temperatures at the upper end of this (6) Index map of critical habitat units for (MLLW) line (average of all the lower range. Specific temperatures within this bull trout follows: low-water heights of the two daily tidal range will vary depending on bull trout BILLING CODE 4310–55–S

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(7) Unit 1: Olympic Peninsula Unit, (A) [Reserved for textual description (B) Note: Map of Critical Habitat for Washington. of unit.] the bull trout (Salvelinus confluentus), (i) Dungeness River Subunit. Dungeness River Subunit, follows:

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(ii) Elwha River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Elwha River Subunit, follows:

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(iii) Hoh River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Hoh River Subunit, follows:

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(iv) Queets River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Queets River Subunit, follows:

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(v) Quinault River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Quinault River Subunit, follows:

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(vi) Skokomish River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Skokomish River Subunit, follows:

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(vii) Hood Canal Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Hood Canal Subunit, follows:

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(viii) Strait of Juan de Fuca Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Juan de Fuca Subunit, follows:

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(ix) Pacific Coast Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Pacific Coast Subunit, follows:

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(x) Chehalis River/Grays Harbor (B) Note: Map of Critical Habitat for Chehalis River/Grays Harbor Subunit, Subunit. the bull trout (Salvelinus confluentus), follows: (A) [Reserved for textual description of unit.]

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(8) Unit 2: Puget Sound Unit, (A) [Reserved for textual description (B) Note: Map of Critical Habitat for Washington. of unit.] the bull trout (Salvelinus confluentus), (i) Chilliwack River Subunit. Chilliwack River Subunit, follows:

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(ii) Nooksack River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Nooksack River Subunit, follows:

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(iii) Skagit River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Skagit River Subunit, follows:

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(iv) Upper Skagit River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Upper Skagit River Subunit, follows:

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(v) Stillaguamish River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Stillaguamish River Subunit, follows:

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(vi) Samish River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Samish River Subunit, follows:

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(vii) Snohomish–Skykomish River (B) Note: Map of Critical Habitat for Snohomish–Skykomish River Subunit, Subunit. the bull trout (Salvelinus confluentus), follows: (A) [Reserved for textual description of unit.]

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(viii) Lake Washington Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Lake Washington Subunit, follows:

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(ix) Lower Green River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Lower Green River Subunit, follows:

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(x) Lower Nisqually River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Lower Nisqually River Subunit, follows:

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(xi) Chester Morse Lake Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Chester Morse Lake Subunit, follows:

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(xii) Puyallup River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Puyallup River Subunit, follows:

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(xiii) Puget Sound Marine Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Puget Sound Marine Subunit, follows:

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(9) Unit 3: Lower Columbia River (A) [Reserved for textual description (B) Note: Map of Critical Habitat for Basins Unit, Washington. of unit.] the bull trout (Salvelinus confluentus), (i) Lewis River Subunit. Lewis River Subunit, follows:

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(ii) Klickitat River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Klickitat River Subunit, follows:

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(iii) White Salmon River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] White Salmon River Subunit, follows:

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(10) Unit 4: Upper Willamette River (i) [Reserved for textual description of (ii) Note: Map of Critical Habitat for Unit, Oregon. unit.] the bull trout (Salvelinus confluentus), Upper Willamette Unit, follows:

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(11) Unit 5: Hood River Unit, Oregon. (ii) Note: Map of Critical Habitat for (i) [Reserved for textual description of the bull trout (Salvelinus confluentus), unit.] Hood River Unit, follows:

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(12) Unit 6: Lower Deschutes River (i) [Reserved for textual description of (ii) Note: Map of Critical Habitat for Unit, Oregon. unit.] the bull trout (Salvelinus confluentus), Lower Deschutes River Unit, follows:

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(13) Unit 7: Odell Lake Unit, Oregon. (ii) Note: Map of Critical Habitat for (i) [Reserved for textual description of the bull trout (Salvelinus confluentus), unit.] Odell Lake Unit, follows:

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(14) Unit 8: Mainstem Lower (i) [Reserved for textual description of Mainstem Lower Columbia River Unit, Columbia River Unit, Oregon and unit.] follows: Washington. (ii) Note: Map of Critical Habitat for the bull trout (Salvelinus confluentus),

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(15) Unit 9: Klamath River Basin (A) [Reserved for textual description (B) Note: Map of Critical Habitat for Unit, Oregon. of unit.] the bull trout (Salvelinus confluentus), (i) Upper Klamath Lake Subunit. Klamath Lake Subunit, follows:

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(ii) Sycan River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Sycan River Subunit, follows:

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(iii) Upper Sprague River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Upper Sprague River Subunit, follows:

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(16) Unit 10: Upper Columbia River (A) [Reserved for textual description (B) Note: Map of Critical Habitat for Basins Unit, Washington. of unit.] the bull trout (Salvelinus confluentus), (i) Methow River Subunit. Methow River Subunit, follows:

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(ii) Chelan River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Chelan River Subunit, follows:

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(iii) Entiat River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Entiat River Subunit, follows:

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(iv) Wenatchee River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Wenatchee River Subunit, follows:

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(17) Unit 11: Yakima River Unit. (ii) Note: Map of Critical Habitat for confluentus),Yakima River Unit, (i) [Reserved for textual description of the bull trout (Salvelinus follows: unit.]

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(18) Unit 12: John Day River Unit, (A) [Reserved for textual description Lower Mainstem John Day River Oregon. of unit.] Subunit follows: (i) Lower Mainstem John Day River (B) Note: Map of Critical Habitat for Subunit. the bull trout (Salvelinus confluentus),

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(ii) Middle Fork John Day River (B) Note: Map of Critical Habitat for Middle Fork John Day River Subunit Subunit. the bull trout (Salvelinus confluentus), follows: (A) [Reserved for textual description of unit.]

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(iii) North Fork John Day River (B) Note: Map of Critical Habitat for North Fork John Day River Subunit, Subunit the bull trout (Salvelinus confluentus), follows (A) [Reserved for textual description of unit.]

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(iv) Upper Mainstem John Day River (B) Note: Map of Critical Habitat for Upper Mainstem John Day River Subunit. the bull trout (Salvelinus confluentus), Subunit, follows: (A) [Reserved for textual description of unit.]

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(19) Unit 13: Umatilla River Unit, (i) [Reserved for textual description of (ii) Note: Map of Critical Habitat for Oregon. unit.] the bull trout (Salvelinus confluentus), Umatilla River Unit, follows:

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(20) Unit 14: Walla Walla River Basin (i) Walla Walla River Subunit. (B) Note: Map of Critical Habitat for Critical Habitat Unit, Oregon and (A) [Reserved for textual description the bull trout (Salvelinus confluentus), Washington. of unit.] Walla Walla River Subunit, follows:

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(ii) Touchet River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Touchet River Subunit, follows:

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(21) Unit 15: Lower Snake River (A) [Reserved for textual description (B) Note: Map of Critical Habitat for Basins Unit, Washington. of unit.] the bull trout (Salvelinus confluentus), (i) Tucannon River Subunit. Tucannon River Subunit, follows:

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(ii) Asotin Creek Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Asotin Creek Subunit, follows:

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(22) Unit 16: Grande Ronde River (i) [Reserved for textual description of (ii) Note: Map of Critical Habitat for Unit, Oregon and Washington. unit.] the bull trout (Salvelinus confluentus), Grande Ronde River Unit, follows:

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(23) Unit 17: Imnaha River Unit, (i) [Reserved for textual description of (ii) Note: Map of Critical Habitat for Oregon. unit.] the bull trout (Salvelinus confluentus), Imnaha River Unit, follows:

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(24) Unit 18: Sheep and Granite (i) [Reserved for textual description of (ii) Note: Map of Critical Habitat for Creeks Unit, Idaho. unit.] the bull trout (Salvelinus confluentus), Sheep and Granite Creeks Unit, follows:

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(25) Unit 19: Hells Canyon Complex (A) [Reserved for textual description (B) Note: Map of Critical Habitat for Unit, Oregon. of unit.] the bull trout (Salvelinus confluentus), (i) Indian Creek Subunit. Indian Creek Subunit, follows:

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(ii) Pine Creek Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Pine Creek Subunit, follows:

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(iii) Wildhorse River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Wildhorse River Subunit, follows:

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(26) Unit 20: Powder River Basin (i) [Reserved for textual description of (ii) Note: Map of Critical Habitat for Unit, Oregon. unit.] the bull trout (Salvelinus confluentus), Powder River Basin Unit, follows:

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(27) Unit 21: Clearwater River Unit, (A) [Reserved for textual description Middle–Lower Fork Clearwater River Idaho. of unit.] Subunit, follows: (i) Middle–Lower Fork Clearwater (B) Note: Map of Critical Habitat for River Subunit the bull trout (Salvelinus confluentus),

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(ii) South Fork Clearwater River (B) Note: Map of Critical Habitat for South Fork Clearwater River Subunit, Subunit. the bull trout (Salvelinus confluentus), follows: (A) [Reserved for textual description of unit.]

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(iii) Selway River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Selway River Subunit, follows:

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(iv) Lochsa River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Lochsa River Subunit, follows:

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(v) North Fork Clearwater River (A) [Reserved for textual description (B) Note: Map of Critical Habitat for Subunit. of unit.] the bull trout (Salvelinus confluentus), North Fork Clearwater Subunit, follows:

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(28) Unit 22: Mainstem Upper (i) [Reserved for textual description of (ii) Note: Map of Critical Habitat for Columbia River Unit, Oregon and unit.] the bull trout (Salvelinus confluentus), Washington. Upper Columbia River Unit, follows:

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(29) Unit 23: Mainstem Snake River (i) [Reserved for textual description of (ii) Note: Map of Critical Habitat for Unit, Idaho, Oregon, and Washington. unit.] the bull trout (Salvelinus confluentus), Mainstem Snake River Unit, follows:

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(30) Unit 24: Malheur River Basin (i) [Reserved for textual description of (ii) Note: Map of Critical Habitat for Unit, Oregon. unit.] the bull trout (Salvelinus confluentus), Malheur River Basin Unit, follows:

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(31) Unit 25: Jarbidge River Unit, (i) [Reserved for textual description of (ii) Note: Map of Critical Habitat for Idaho and Nevada. unit.] the bull trout (Salvelinus confluentus), Jarbidge River Unit, follows:

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(32) Unit 26: Southwest Idaho River (A) [Reserved for textual description (B) Note: Map of Critical Habitat for Basins Unit, Idaho. of unit.] the bull trout (Salvelinus confluentus), (i) Weiser River Subunit. Weiser River Subunit, follows:

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(ii) Squaw Creek Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Squaw Creek Subunit, follows:

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(iii) North Fork Payette River Subunit. (B) Note: Map of Critical Habitat for North Fork Payette River Subunit, (A) [Reserved for textual description the bull trout (Salvelinus confluentus), follows: of unit.]

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(iv) Middle Fork Payette River (B) Note: Map of Critical Habitat for Middle Fork Payette River Subunit, Subunit. the bull trout (Salvelinus confluentus), follows: (A) [Reserved for textual description of unit.]

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(v) Upper South Fork Payette River (B) Note: Map of Critical Habitat for Upper South Fork Payette River Subunit. the bull trout (Salvelinus confluentus), Subunit, follows: (A) [Reserved for textual description of unit.]

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(vi) Deadwood River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Deadwood River Subunit, follows:

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(vii) Arrowrock Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Arrowrock Subunit, follows:

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(viii) Anderson Ranch Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Anderson Ranch Subunit, follows:

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(33) Unit 27: Salmon River Basin (A) [Reserved for textual description (B) Note: Map of Critical Habitat for Unit, Idaho. of unit.] the bull trout (Salvelinus confluentus), (i) Little-Lower Salmon Subunit. Little-Lower Salmon Subunit, follows:

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(ii) South Fork Salmon River Subunit. (B) Note: Map of Critical Habitat for South Fork Salmon River Subunit, (A) [Reserved for textual description the bull trout (Salvelinus confluentus), follows: of unit.]

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(iii) Middle Salmon River– (B) Note: Map of Critical Habitat for Middle Salmon River–Chamberlain Chamberlain River Subunit. the bull trout (Salvelinus confluentus), River Subunit, follows: (A) [Reserved for textual description of unit.]

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(iv) Middle Fork Salmon River (B) Note: Maps of Critical Habitat for Middle Fork Salmon River Subunit, Subunit. the bull trout (Salvelinus confluentus), follows. (A) [Reserved for textual description of unit.]

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(v) Middle Salmon–Panther River (B) Note: Map of Critical Habitat for Middle Salmon–Panther River Subunit, Subunit. the bull trout (Salvelinus confluentus), follows: (A) [Reserved for textual description of unit.]

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(vi) Lake Creek Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Lake Creek Subunit, follows:

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(vii) Opal Lake Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Opal Lake Subunit, follows:

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(viii) Lemhi River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Lemhi River Subunit, follows:

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(ix) Pahsimeroi River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Pahsimeroi River Subunit, follows:

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(x) Upper Salmon River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Upper Salmon River Subunit, follows:

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(34) Unit 28: Little Lost River Unit, (i) [Reserved for textual description of (ii) Note: Map of Critical Habitat for Idaho. unit.] the bull trout (Salvelinus confluentus), Little Lost River Unit, follows:

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(35) Unit 29: Coeur d’Alene River (i) [Reserved for textual description of (ii) Note: Map of Critical Habitat for Basin Unit, Idaho. unit.] the bull trout (Salvelinus confluentus), Coeur d’Alene River Basin Unit follows:

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(36) Unit 30: Kootenai River Basin (A) [Reserved for textual description (B) Note: Map of Critical Habitat for Unit, Idaho and Montana. of unit.] the bull trout (Salvelinus confluentus), (i) Kootenai River Subunit. Kootenai River Subunit, follows:

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(ii) Lake Koocanusa Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Lake Koocanusa Subunit, follows:

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(36) Unit 31: Clark Fork River Basin (A) [Reserved for textual description Priest Lakes and Upper Priest River Unit, Idaho, Montana, and Washington. of unit.] (Priest Lakes) Subunit, follows: (i) Priest Lakes and Upper Priest River (B) Note: Map of Critical Habitat for (Priest Lakes) Subunit. the bull trout (Salvelinus confluentus),

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(ii) Lake Pend Oreille, Pend Oreille (A) [Reserved for textual description Lake Pend Oreille, Pend Oreille River, River, and lower Priest River (Lake Pend of unit.] and lower Priest River (Lake Pend Oreille) Subunit (B) Note: Map of Critical Habitat for Oreille) Subunit, follows: the bull trout (Salvelinus confluentus),

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(iii) Lower Clark Fork River Subunit. (B) Note: Map of Critical Habitat for Lower Clark Fork River Subunit, (A) [Reserved for textual description the bull trout (Salvelinus confluentus), follows: of unit.]

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(iv) Middle Clark Fork River Subunit. (B) Note: Map of Critical Habitat for Middle Clark Fork River Subunit, (A) [Reserved for textual description the bull trout (Salvelinus confluentus), follows: of unit.]

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(v) Upper Clark Fork River Subunit. (B) Note: Map of Critical Habitat for Upper Clark Fork River Subunit, (A) [Reserved for textual description the bull trout (Salvelinus confluentus), follows: of unit.]

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(vi) Bitterroot River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Bitterroot River Subunit, follows:

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(vii) Rock Creek Subunit (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Rock Creek Subunit, follows:

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(viii) Blackfoot River Subunit. (B) Note: Map of Critical Habitat for (A) [Reserved for textual description the bull trout (Salvelinus confluentus), of unit.] Blackfoot River Subunit, follows:

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(ix) Clearwater River and Lakes (B) Note: Map of Critical Habitat for Clearwater River and Lakes Subunit, Subunit. the bull trout (Salvelinus confluentus), follows: (A) [Reserved for textual description of unit.]

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(x) Flathead Lake, Flathead River, and (B) Note: Map of Critical Habitat for Headwater Lakes (Flathead) Subunit Headwater Lakes (Flathead) Subunit. the bull trout (Salvelinus confluentus), follows: (A) [Reserved for textual description Flathead Lake, Flathead River, and of unit.]

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(xi) Swan River and Lakes (Swan) (B) Note: Map of Critical Habitat for Swan River and Lakes (Swan) Subunit, Subunit. the bull trout (Salvelinus confluentus), follows: (A) [Reserved for textual description of unit.]

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(xii) Hungry Horse Reservoir, South (A) [Reserved for textual description Hungry Horse Reservoir, South Fork Fork Flathead River and Headwater of unit.] Flathead River and Headwater Lakes Lakes (South Fork Flathead) Subunit. (B) Note: Map of Critical Habitat for (South Fork Flathead) Subunit, follows: the bull trout (Salvelinus confluentus),

(37) Unit 32: Saint Mary River Basin (i) [Reserved for textual description of (ii) Note: Map of Critical Habitat for Unit, Montana. unit.] the bull trout (Salvelinus confluentus), Saint Mary River Basin Unit, follows:

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* * * * * Dated: December 31, 2009 Eileen Sobeck, Acting Assistant Secretary for Fish and Wildlife and Parks. [FR Doc. 2010–176 Filed 1–13–10; 8:45 am] BILLING CODE 4310–55–C

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