U.S. Fish and Wildlife Service did not act arbitrarily or capriciously in not issuing Endangered Species Act incidental take permit as part of biological opinion for expected impacts on plant species listed as threatened under act from expanded off-road vehicle access to managed sand dunes area, because: (1) in context of act as whole, act unambiguously does not require incidental take permits for impacts to listed plants, and (2) even if act were ambiguous, service's reasonable interpretation of act as not requiring ITP permits for impacts to listed plant species would be entitled to deference.
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