Proposed Rule2025-20154
Endangered and Threatened Wildlife and Plants; 12-Month Not-Warranted Finding for the Okinawa Woodpecker
Primary source
Metadata and text below are from the Federal Register, a public-domain U.S. government work. Always verify the official published version before relying on it for any legal matter.
Published
November 18, 2025
Issuing agencies
Interior DepartmentFish and Wildlife Service
Abstract
We, the U.S. Fish and Wildlife Service (Service), announce a 12-month finding on a petition to list the Okinawa woodpecker (Dendrocopos noguchii) as an endangered or threatened species under the Endangered Species Act of 1973, as amended (Act). The Okinawa woodpecker is a relatively large woodpecker endemic to northern Okinawa, Japan. After a thorough review of the best scientific and commercial data available, we find that listing the Okinawa woodpecker as an endangered, or threatened, species is not warranted at this time. However, we ask the public to submit to us, at any time, any new information relevant to the status of the Okinawa woodpecker, or its habitat.
Full Text
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<title>Federal Register, Volume 90 Issue 220 (Tuesday, November 18, 2025)</title>
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[Federal Register Volume 90, Number 220 (Tuesday, November 18, 2025)]
[Proposed Rules]
[Pages 51632-51635]
From the Federal Register Online via the Government Publishing Office [<a href="http://www.gpo.gov">www.gpo.gov</a>]
[FR Doc No: 2025-20154]
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DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
50 CFR Part 17
[Docket No. FWS-HQ-ES-2025-0771; FXES1111090FEDR-256-FF09E21000]
Endangered and Threatened Wildlife and Plants; 12-Month Not-
Warranted Finding for the Okinawa Woodpecker
AGENCY: Fish and Wildlife Service, Interior.
ACTION: Notification of finding.
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SUMMARY: We, the U.S. Fish and Wildlife Service (Service), announce a
12-month finding on a petition to list the Okinawa woodpecker
(Dendrocopos noguchii) as an endangered or threatened species under the
Endangered Species Act of 1973, as amended (Act). The Okinawa
woodpecker is a relatively large woodpecker endemic to northern
Okinawa, Japan. After a thorough review of the best scientific and
commercial data available, we find that listing the Okinawa woodpecker
as an endangered, or threatened, species is not warranted at this time.
However, we ask the public to submit to us, at any time, any new
information relevant to the status of the Okinawa woodpecker, or its
habitat.
DATES: The finding in this document was made on November 18, 2025.
ADDRESSES: A detailed description of the basis for this finding is
available on the internet at <a href="https://www.regulations.gov">https://www.regulations.gov</a> under Docket
No. FWS-HQ-ES-2025-0771. Please submit any new information, materials,
comments, or questions concerning this finding to the person listed
under FOR FURTHER INFORMATION CONTACT.
FOR FURTHER INFORMATION CONTACT: Rachel London, Manager, Branch of
Delisting and Foreign Species, Ecological Services Program, U.S. Fish
and Wildlife Service, MS: ES, 5275 Leesburg Pike, Falls Church, VA
22041-3803; telephone: 703-358-2171. Individuals in the United States
who are deaf, deafblind, hard of hearing, or have a speech disability
may dial 711 (TTY, TDD, or TeleBraille) to access telecommunications
relay services. Individuals outside the United States should use the
relay services offered within their country to make international calls
to the point-of-contact in the United States.
SUPPLEMENTARY INFORMATION:
Background
Under section 4(b)(3)(B) of the Act (16 U.S.C. 1531 et seq.), when
we receive any petition that we have determined contains substantial
scientific or commercial information then we must decide, within 12
months, if the petitioned action is warranted or not (12-month
finding). We must make a finding that the petitioned action is: (1) not
warranted; (2) warranted; or (3) warranted but precluded by other
listing activity. We must publish a notification of the 12-month
finding in the Federal Register.
Summary of Information Pertaining to the Five Factors
Section 4 of the Act (16 U.S.C. 1533) and the implementing
regulations at part 424 of title 50 of the Code of Federal Regulations
(50 CFR part 424) set forth the procedures for: (1) adding species to,
(2) removing species from, or (3) reclassifying species on the Lists of
Endangered and Threatened Wildlife and Plants (Lists). The Act defines
``species'' as including any subspecies of fish, wildlife, or plants
and any distinct population segment of any species of vertebrate fish
or wildlife which interbreeds when mature. The Act defines an
``endangered species'' as a species that is in danger of extinction
throughout all, or a significant portion, of its range and a
``threatened species'' as a species that is likely to become an
endangered species within the foreseeable future throughout all or a
significant portion of its range. The Act requires that we determine
whether any species is an endangered species or a threatened species
because of any of the following factors:
(A) The present or threatened destruction, modification, or
curtailment of its habitat or range;
(B) Overutilization for commercial, recreational, scientific, or
educational purposes;
(C) Disease or predation;
(D) The inadequacy of existing regulatory mechanisms; or
(E) Other natural or manmade factors affecting its continued
existence.
These factors represent broad categories of natural or human-caused
actions or conditions that could have an effect on a species' continued
existence. In evaluating these actions and conditions, we look for
those that may have a negative effect on individuals of the species, as
well as other actions or conditions that may ameliorate any negative
effects or may have positive effects.
We use the term ``threat'' to refer, in general, to actions or
conditions that are known to, or are reasonably likely to, negatively
affect individuals of a species. The term ``threat'' includes actions
or conditions that have a direct impact on individuals (direct
impacts), as well as those that affect individuals through alteration
of their habitat or required resources (stressors). The term ``threat''
may encompass--either together or separately--the source of the action
or condition or the action or condition itself.
However, the mere identification of any threat(s) does not
necessarily mean that the species meets the statutory definition of an
``endangered species'' or a ``threatened species.'' In determining
whether a species meets either definition, we must evaluate all
identified threats by considering the species' expected response to the
threats, the effects of the threats, and any actions and conditions
that will ameliorate the threats at an individual, population, and
species level. We evaluate each threat and its expected effects on the
species, then analyze the cumulative effect of all the threats on the
species as a whole. We also consider the cumulative effect of the
threats along with those actions and conditions that will have positive
effects on the species, such as any existing regulatory mechanisms or
conservation efforts. The Secretary determines whether the species
meets the definition of an ``endangered species'' or a ``threatened
species'' only after conducting this cumulative analysis and describing
the expected effect on the species.
The Act does not define the term ``foreseeable future,'' which
appears in the statutory definition of ``threatened species.'' Our
implementing regulations under 50 CFR, section 424.11(d) set forth a
framework for evaluating the ``foreseeable future'' as a case-by-case
basis. This term is further described in
[[Page 51633]]
the 2009 Memorandum Opinion on the foreseeable future from the
Department of the Interior, Office of the Solicitor (M-37021, January
16, 2009; ``M-Opinion,'' available online at <a href="https://www.doi.gov/sites/doi.opengov.ibmcloud.com/files/uploads/M-37021.pdf">https://www.doi.gov/sites/doi.opengov.ibmcloud.com/files/uploads/M-37021.pdf</a>). The foreseeable
future extends as far into the future as the Service can make
reasonably reliable predictions about the threats to the species and
the species' responses to those threats. We need not identify the
foreseeable future in terms of a specific period of time. We will
describe the foreseeable future on a case-by-case basis, using the best
available data and taking into account considerations such as the
species' life-history characteristics, threat projection timeframes,
and environmental variability. In other words, the foreseeable future
is the period of time over which we can make reasonably reliable
predictions. ``Reliable'' does not mean ``certain''; it means
sufficient to provide a reasonable degree of confidence in the
prediction, in light of the conservation purposes of the Act.
In conducting our evaluation of the five factors provided in
section 4(a)(1) of the Act to determine whether the Okinawa woodpecker
meets the Act's definition of an endangered species or a threatened
species, we considered and thoroughly evaluated the best scientific and
commercial information available regarding the past, present, and
future stressors and threats. We reviewed the petition, candidate
notice of review, information available in our files, and other
available published and unpublished information for the species. Our
evaluation may include information from recognized experts; Federal,
State, and Tribal governments; academic institutions; foreign
governments; private entities; and other members of the public.
In accordance with the regulations under 50 CFR, section
424.14(h)(2)(i), this document announces the not-warranted finding on a
petition to list the Okinawa woodpecker. We have also elected to
include a brief summary of the analysis on which this finding is based.
We provide the full analysis, including the reasons and data on which
the finding is based, in the decisional file for the Okinawa
woodpecker. The following is a description of the documents containing
this analysis.
The species assessment form for the Okinawa woodpecker contains
more detailed biological information, a thorough analysis of the
listing factors, a list of literature cited, and an explanation of why
we determined that the species does not meet the Act's definition of an
endangered species or a threatened species. To inform our status
review, we completed a species status assessment (SSA) report for the
species. The SSA report contains a thorough review of the taxonomy,
life history, ecology, current status, and projected future status for
the Okinawa woodpecker. This supporting information can be found on the
internet at <a href="https://www.regulations.gov">https://www.regulations.gov</a> under the Docket No. FWS-HQ-ES-
2025-0771.
Previous Federal Actions
On November 28, 1980, we received a petition from the International
Council for Bird Preservation to list 79 bird species as endangered or
threatened species under the Act. The International Council for Bird
Preservation was renamed Birdlife International in 1994. On May 12,
1981, we published in the Federal Register (46 FR 26464) a 90-day
finding in which we announced that the petition contained substantial
information indicating that listing may be warranted for 77 of the 79
bird species, including the Okinawa woodpecker. At the time of the
petition, the Okinawa woodpecker was classified as Sapheopipo noguchii.
However, we recognized the Okinawa woodpecker in the genus Dendrocopos
in 2009 and recognize the species as Dendrocopos noguchii and treat
Sapheopipo noguchii as a synonym (74 FR 40540, August 12, 2009).
Prior to the present action, the Okinawa woodpecker has been a
candidate species (warranted but precluded) since May 21, 2004 (69 FR
29353), most recently with a listing priority number of 8 (88 FR
41560), meaning that the species has imminent and moderate to low
magnitude of threats. From 2007 through 2023, we addressed the status
of the Okinawa woodpecker in our candidate notice of review (CNOR),
with the determination that listing was warranted but precluded (see 72
FR 20184, April 23, 2007; 73 FR 44062, July 29, 2008; 74 FR 40540,
August 12, 2009; 76 FR 25150, May 3, 2011; 78 FR 24604, April 25, 2013;
81 FR 71457, October 17, 2016; 84 FR 54732, October 10, 2019; 86 FR
43470, August 9, 2021; 87 FR 26152, May 3, 2022; 88 FR 41560, June 27,
2023).
Summary of Finding
The Okinawa woodpecker is a relatively large woodpecker (31-35
centimeters (cm; 12-14 inches (in)) in length). The species is
generally dark brown with red tips on all feathers and white spots on
the primary feathers (Bird Life International (BLI) 2024, p. 1). Males
are brighter than females, with a deep-red crown and nape (Brazil 2014,
p. 284). Immature birds are grayer, duller, and less red than adults
(Short 1982, p. 511; Brazil 2014, p. 284). The nesting season for the
Okinawa woodpecker begins in April and runs through June, with pair
formation in late winter (Kotaka et al. 2021, p. 193; Short 1982, p.
512; Short 1973, p. 12). Egg laying takes place from late February to
May, typically in March and April (del Hoyo 2002, p. 550).
The species is endemic to Okinawa, Japan, and currently only occurs
in the northern part of the island although it was reported to occur
further south prior to World War Two and as far south as Nago City
until the 1980s (Ministry of the Environment (MOE) 2008, unpaginated;
Kotaka 2025, pers. comm.). The northern section is generally known as
the Yambaru (or Yanbaru), and it can be considered the three villages
of Kunigami, Higashi, and Ogimi in the northernmost part of Okinawa
Island (Yagihashi et al. 2021, p. 2251; Govt of Japan 2019, p. 34).
Several forested peaks run from north to south along the central
mountain ridge in northern Okinawa, and the Okinawa woodpecker
primarily occurs between Mount Nishimedake and Mount Iyudake (BLI 2024,
p. 2; Gorman 2014, p. 257).
The climax community of Yambaru is a subtropical, evergreen, broad-
leaved forest dominated by oaks, with a dense undergrowth of broad-
leaved small trees, herbs, and ferns (Azuma et al. 1997, p. 156). The
Okinawa woodpecker mainly nests in mature and undisturbed subtropical
evergreen broadleaf forests on mountaintops with trees that are at
least 30 years old and greater than 20 cm (7.9 in) in diameter (Gorman
2014, p. 257; del Hoyo 2002, p. 550; Short 1982, p. 511). The Yambaru
forest is relatively young; however, pine trees are present in its
secondary forest, and the Okinawa woodpecker will use pine trees as a
nesting substrate if they are large enough and suitable for nesting,
but only when the trees are standing dead. Furthermore, Okinawa
woodpecker will use younger forests that may contain dead trees in
which exotic pest species cause die offs and cavity formations in
trees. These trees are an ephemeral source that the Okinawa woodpecker
has adapted to use. The availability of nest trees is a critical
reproductive requirement for woodpeckers (Winkler and Christie 2010,
cited in Kotaka et al. 2021, p. 193).
The Okinawa woodpecker feeds on large arthropods, notably beetle
larvae, spiders, moths, and centipedes, as well as fruit, berries,
seeds, acorns, and other
[[Page 51634]]
nuts (del Hoyo 2002, pp. 549-550; Short 1982, p. 511). The foraging
sites of the species indicate its dependence on mature, undisturbed
forest with large dead or dying trees, accumulated fallen trees,
rotting stumps, debris, and understory growth (Brazil 1991, p. 192;
Short 1982, p. 511). The sexes show significant differences in their
foraging niche (Kotaka et al. 2006, p. 196). Males commonly forage on
the ground, sweeping away leaf litter and probing for soil-dwelling
arthropods and females almost never touch soil arthropods like other
species of the genus Dendrocopos (Kotaka et al. 2006, p. 196).
For populations to be resilient, the species needs healthy
populations (stable to increasing abundance) occupying habitats that
support key resource functions (breeding, feeding, and sheltering),
sufficient distribution of populations in northern Okinawa, and that
maintain connectivity and dispersal (species vagility or ability to
move) between suitable habitat at sufficient levels to ensure healthy
gene flow among populations.
Most forested areas in northern Okinawa are protected such that the
vast majority of the species' range is within formally protected
forested areas or within the Jungle Warfare Training Center (JWTC)
where conservation measures are in place for the species. Most of
northern Okinawa is designated as Yambaru National Park or is within a
United Nations Educational, Scientific and Cultural Organization
(UNESCO) World Heritage Site. Additionally, the Okinawa woodpecker is
listed under Japan's Act on Conservation of Endangered Species of Wild
Fauna and Flora (MOE 2020, unpaginated). The species is also designated
as a National Natural Monument under the Law for the Protection of
Cultural Properties (Law No. 7). These laws require review and
mitigation procedures to assess potential impacts on known cultural
assets. The Okinawa woodpecker is also included in the U.S. Marine
Corps' Integrated Natural and Cultural Resources Management Plan that
provides measures to avoid and minimize impacts of their activities to
the species (DOD 2019, p. 44). These efforts to avoid and minimize
impacts appear to be successful, as even with the ongoing activities to
construct helipads at the JWTC in recent years, the Okinawa woodpecker
population has stabilized and is likely increasing.
Recognition of the invasive Indian mongoose's (Herpestes
auropunctatus) impact only became widespread after systematic control
efforts began in the 2000s (Kotaka 2025, pers. comm.). Thus, concerted
efforts to eradicate the mongoose from northern Okinawa are ongoing and
proven beneficial for woodpecker conservation (MOE 2014, entire). In
2005, the Ministry of the Environment and Okinawa Prefecture began
working together to implement a control project in response to the
designation of mongooses as a specified alien species (MOE 2024,
unpaginated). An eradication plan for the mongoose has been effective
and has benefited the Okinawa woodpecker, resulting in an increase in
the Okinawa woodpecker population. Eradication of mongoose from
northern Okinawa is anticipated by 2027, although eradication is
difficult, and efforts may be extended beyond 2027, However, there is a
clear commitment to eradicate mongoose from northern Okinawa.
Additionally, feral cats (Felis catus) are a growing concern in
Okinawa. Control programs for feral cats have proven complex and less
successful. There is an action plan in the three northern villages
(Kunigami, Ogimi, and Higashi) and Okinawa Prefecture to address feral
cats that is being strengthened, and management is gradually
progressing. Even though the eradication effort for feral cats is less
successful than mongoose eradication efforts, the Okinawa woodpecker
population has stabilized and is likely increasing.
We have carefully assessed the best scientific and commercial data
available regarding the past, present, and future threats to the
Okinawa woodpecker, and we evaluated all relevant factors under the
five listing factors, including any regulatory mechanisms and
conservation measures addressing these threats. Since the development
of our 2023 CNOR, we have new information that the species' habitat has
continued to improve and recovered to the basic features of a climax
community and is no longer severely fragmented. Additionally, nonnative
species management has proven effective and reduced the magnitude of
threat of mongoose and feral cats to the Okinawa woodpecker.
Eradication is difficult; however, management plans have a clear
commitment to eradicating nonnative predators in northern Okinawa for
the benefit of native species, including the Okinawa woodpecker.
Considering this new information regarding reduced threats to the
Okinawa woodpecker, we developed a more informed picture of the current
and future conditions of the species than had been available for the
2023 CNOR.
The primary threats affecting the Okinawa woodpecker's biological
status now and in the foreseeable future include nonnative invasive
predators (mongoose and feral cats); habitat loss, degradation, and
fragmentation; and shifting forest composition and tree diversity
related to effects from climate change.
After evaluating threats to the species and assessing the
cumulative effect of the threats under the section 4(a)(1) factors, our
analysis indicates these threats are not currently affecting
populations and thus do not pose an imminent threat to the species. The
Okinawa woodpecker populations are distributed in northern Okinawa
within the known range of the species. As a narrow endemic, this
species' range is restricted; thus, catastrophes pose an inherent risk
to the species. However, threats are not of a magnitude to have large
impacts on the species. We anticipate increases in the magnitude and
frequency of typhoons. However, evergreen forests in northern Okinawa
have high stability, the Okinawa woodpecker has adapted to use non-
traditional resources for nesting and has a diverse diet, and wildlife
in this region have adapted to frequent typhoons and heavy rains over a
long period of time. Therefore, the number and distribution of
sufficiently resilient populations are likely to continue to enable the
species to withstand catastrophic events.
The adaptive capacity evaluation suggests that the species' current
representation, while naturally low because it is a narrow endemic, has
not been diminished. The mountaintop areas contain similar evergreen
broadleaf forest habitat that the species needs for breeding, feeding,
and sheltering. Okinawa woodpeckers can persist in place because the
condition of the forest has steadily improved over the last three
decades. The species can also shift in space because it has high
vagility and can disperse within its narrow range through flight to
mountaintop areas in northern Okinawa. Connectivity between mountaintop
areas has increased because the habitat condition has significantly
improved and is no longer severely fragmented. The current condition
analysis indicates that the ``3Rs''--resiliency, representation, and
redundancy--are sufficient to support the overall viability of the
species. Thus, after assessing the best available information, we
conclude that the Okinawa woodpecker is not in danger of extinction
throughout all of its range.
Our analyses use projections over the next three decades into the
future and indicate that conditions are not expected to decline to a
level where the species' viability is impacted. Efforts to eradicate
nonnative predators have been
[[Page 51635]]
highly successful and eradication of mongoose from northern Okinawa is
anticipated by 2027, although efforts may be extended beyond 2027 with
clear commitment to eradicate the mongoose from northern Okinawa. The
vast majority of the species' habitat is protected in Yambaru National
Park, a UNESCO World Heritage site, as well as the U.S. Marine Corps at
the JWTC. These designated land uses are unlikely to change in the
future. Additionally, the Okinawa woodpecker is a protected species in
Okinawa and formal protection of the species and its habitat in Okinawa
are likely to continue. Effects of climate change are not expected to
pose increased risks in the future due to the species' resiliency and
adaptability, and environmental conditions are expected to continue to
meet life history requirements. Thus, in a foreseeable future of up to
30 years, we can make reasonable predictions that the Okinawa
woodpecker will not be affected significantly by the threat of
nonnative invasive predators; habitat loss, degradation, and
fragmentation; or effects of climate change.
Given the species' current condition, substantially reduced
threats, and formal protection of the species and the vast majority of
its range, no reductions in resilience, redundancy, or representation
are anticipated, and viability is expected to be maintained into the
foreseeable future. Overall, the species is likely to maintain a small
but healthy population into the future. Redundancy on mountaintops in
northern Okinawa combined with the species' resiliency and ability to
adapt to ongoing threats by utilizing diverse nesting sites and food
resources supports the species viability into the future in the face of
ongoing threats. After assessing the best scientific and commercial
data available, we conclude that the Okinawa woodpecker is not likely
to become endangered within the foreseeable future throughout all its
range.
For the Okinawa woodpecker, we considered whether the threats or
their effects on the species are greater in any portion of the species'
range than in other portions such that the species is in danger of
extinction now or likely to become so within the foreseeable future in
that portion. The Okinawa woodpecker functions as a single population
that occurs on several mountaintop areas along the central ridgeline in
northern Okinawa. There is minimal information describing population
units, subpopulations, or any other information to distinguish analysis
units in northern Okinawa. The threats of habitat loss, degradation,
and fragmentation; nonnative invasive species; and shifting forest
composition and tree diversity related to effects from climate change
affect the species such that it has similar extinction risk throughout
its entire range. We determined that within the narrow range of the
species, these threats are not posing an imminent threat to the species
anywhere within the current range and there are no portions of the
range in which the magnitude of threats is greater or exposure to
threats differs. The population has sufficient resiliency in the near
term and is distributed such that the species is at low risk from
catastrophic events such as typhoons. Therefore, we found no portion of
the Okinawa woodpecker's range where the biological condition of the
species differs from its condition elsewhere in its range such that the
status of the species in that portion differs from its status in any
other portion of the species' range. As a result of our finding that
the Okinawa woodpecker is not in danger of extinction or likely to
become so within the foreseeable future throughout any portion of its
range, we do not need to determine whether any portion of its range is
``significant.'' Therefore, no portion of the species' range provides a
basis for determining that the species is in danger of extinction or
likely to become so within the foreseeable future throughout a
significant portion of its range.
After assessing the best available information, we concluded that
the Okinawa woodpecker is not in danger of extinction or likely to
become in danger of extinction within the foreseeable future throughout
all its range or in any significant portion of its range. Therefore, we
find that listing the Okinawa woodpecker as an endangered species or
threatened species under the Act is not warranted. A detailed
discussion of the basis for this finding can be found in the Okinawa
woodpecker species assessment form, SSA report, and other supporting
documents on <a href="https://www.regulations.gov">https://www.regulations.gov</a> under Docket No. FWS-HQ-ES-
2025-0771 (see ADDRESSES, above).
Peer Review
In accordance with our joint policy on peer review published in the
Federal Register on July 1, 1994 (59 FR 34270), and our August 22,
2016, memorandum updating and clarifying the role of peer review in
listing actions under the Act, we solicited independent scientific
reviews of the information contained in the Okinawa woodpecker SSA
report from three experts and received peer review from one independent
peer reviewer. Results of this structured peer review process can be
found at <a href="https://www.regulations.gov">https://www.regulations.gov</a> under Docket No. FWS-HQ-ES-2025-
0771. We incorporated the results of this review, as appropriate, into
the SSA report, which is the foundation for this finding.
New Information
We request that you submit any new information concerning the
taxonomy of, biology of, ecology of, status of, or stressors to the
Okinawa woodpecker to the person specified above under FOR FURTHER
INFORMATION CONTACT, whenever it becomes available. New information
will help us monitor the species and make appropriate decisions about
its conservation and status. We encourage local agencies and
stakeholders to continue cooperative monitoring and conservation
efforts.
References
A complete list of the references used in this petition finding is
available in the species assessment form, which is available on the
internet at <a href="https://www.regulations.gov">https://www.regulations.gov</a> under Docket No. FWS-HQ-ES-
2025-0771 (see ADDRESSES, above) and upon request from the headquarters
office (see FOR FURTHER INFORMATION CONTACT, above).
Authority
The authority for this action is section 4 of the Endangered
Species Act of 1973, as amended (16 U.S.C. 1531 et seq.).
Brian Nesvik,
Director, U.S. Fish and Wildlife Service.
[FR Doc. 2025-20154 Filed 11-17-25; 8:45 am]
BILLING CODE 4333-15-P
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This is legal information, not legal advice. Laws vary by jurisdiction and change frequently. Always verify current law with official sources and consult a licensed attorney in your jurisdiction for advice on your specific situation.