FINAL REPORT

Workshop on the Management of Hawaiian Monk Seals

on Beaches in the Main Hawaiian Islands

29-31 October 2002

Kauai Sheraton Resort

Koloa, Kauai, Hawaii

Cosponsored by

Marine Mammal Commission

National Marine Fisheries Service

Hawaii Division of Aquatic Resources

January 2003 
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page i

Contents

Executive Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . iii

I. Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

II. Summary of Invited Papers and Presentations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2

1. Distribution and Abundance of Hawaiian Monk Seals

in the Main Hawaiian Islands (Jason D. Baker and 

Thea C. Johanos) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2

2. The Role of the Main Hawaiian Islands in the Recovery

of the Hawaiian Monk Seal (Timothy J. Ragen) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

3. Monk Seal Movement and Haul-Out Patterns in the

Northwestern Hawaiian Islands (Albert L. Harting

Thea C. Johanos, and George A. Antonelis) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

4. Responses of Monk Seals to Human Disturbance and

Handling (William G. Gilmartin) . . . . . . . . . . . . . . . ......................... 4

5. Handling Risks and Disease Considerations of Hawaiian

Monk Seals in the Main Hawaiian Islands (Robert C. Braun) . . . . . . . . . . . . . . . . . . 5

6. Legal Requirements under the Marine Mammal 

Protection Act, the Endangered Species Act, and 

State Law (Michael L. Gosliner) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

7. Whose Beach Is It Anyway?: Managing Seals at

Childrenís Pool, La Jolla, California (James H. Lecky) . . . . . . . . . . . . . . . . . . . . . . . 6

8. Management Experience To Date: National Marine Fisheries

Service (Margaret A. Dupree) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6

9. Management Experience To Date: Hawaiíi Department

of Land and Natural Resources (Jeffrey S. Walters and

Donald Heacock) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7

10. Management Experience To Date: Volunteer Monk Seal

Watch Programs on Kauai and Maui (Tim Robinson and

Hannah Bernard) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
Page ii WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

III. Identification of Possible Management Options . . . . . . . . . ......................... 8

IV. Recommended Criteria and Protocols for Management Options . . . . . . . . . . . . . . . . . . . . . 8

1. Working Group A (Public Education and Outreach) . . . . . . . . . . . . . . . . . . . . . . . . 9

2. Working Group B (Improve and Maintain a Reporting System/

Deploy Site Investigators) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10

3. Working Group C (Post Monitors/Post Seal Safety Zones/

 Install Physical Barriers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11

4. Working Group D (Haze Seals/Translocate Seals/Medical

Intervention) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11

5. General Discussion of Management Options . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12

V. Implementing Identified Management Options . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13

VI. Research Needs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15

APPENDIX 1: Terms of Reference . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19

APPENDIX 2: Agenda . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22

APPENDIX 3: List of Participants . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25

APPENDIX 4: Background Papers Prepared for the Workshop . . . . . . . . . . . . . . . . . . . . . . . 33

APPENDIX 5: Report of Working Group A (Public Education) . . . . . . . . . . . . . . . . . . . . . 34

APPENDIX 6: Report of Working Group B (Improve and Maintain a Reporting

System/Deploy Site Investigators) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38

APPENDIX 7: Report of Working Group C (Post Seal Safety Zones/

Post Monitors/Install Physical Barriers) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42

APPENDIX 8: Report of Working Group D (Haze Seals/Translocate

Seals/Medical Intervention) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page iii

EXECUTIVE SUMMARY

Hawaiian monk seals occur principally in the Northwestern Hawaiian Islands and are one of

the worldís most endangered seals. In recent years, however, their numbers have increased

significantly in the main Hawaiian Islands, particularly on the islands of Niihau and Kauai. Recent

surveys suggest that at least 100 seals may now occupy the main Hawaiian Islands. While this

increase raises promising new prospects for the speciesí recovery, it also poses new management

challenges. For example, monk seals have hauled out and given birth on popular recreational

beaches where they are subject to harassment by people, and on at least two occasions in the past

two years, seals have bitten swimmers. Restricting human use of popular beaches could have

significant impacts on local tourism-based economies. The occurrence of monk seals in the main

Hawaiian Islands also raises new risks due to the possible transmission of diseases from pets,

livestock, and feral animals to the wild monk seal population. 

To address these issues, steps have been taken to increase research on the biology of monk

seals in the main Hawaiian Islands, increase public awareness of monk seals, post temporary safety

zones around hauled-out seals to keep people from approaching too closely, move some weaned

pups from populated beaches to more remote areas and, on one occasion, to temporarily close a

popular public beach to protect a mother-pup pair. Clear guidance on how to address different

types of haul-out situations in the main Hawaiian Islands has not been developed. Therefore, the

Marine Mammal Commission, the National Marine Fisheries Service, and the Hawaii Division of

Aquatic Resources jointly convened a workshop on 29-31 October 2002 in Koloa, Hawaii, to (1)

review information on monk seal haul-out patterns, (2) discuss potential actions to address monk

seal haul-out events in the main Hawaiian Islands, and (3) identify additional research and

management actions that may be needed.

 Participants in the workshop included 70 people representing federal, state, and local

agencies, volunteer groups, the local hotel and tourist industry, environmental organizations, and the

scientific community. Invited papers were prepared on monk seal distribution and haul-out

patterns, the potential role of the main Hawaiian Islands in the speciesí recovery, the effects of

human disturbance on monk seals, disease considerations, legal considerations, management actions

to date by federal and state agency officials and volunteers, possible management options, and the

use of an adaptive management approach. The papers were sent to participants two weeks before

the meeting to help stimulate ideas for discussion and were presented orally at the workshop. Major

workshop findings are discussed below.

Management Options

The National Marine Fisheries Service has lead responsibility under the Marine Mammal

Protection Act and the Endangered Species Act for protecting monk seals. The Service, however,

has been severely limited in addressing issues in the main Hawaiian Islands due in large part to

limited staff and funding. Therefore, with little or no funding, state and local agency officials,

volunteers, environmental groups, and local businesses have stepped forward to provide valuable

assistance to protect hauled-out seals. Although most seals appear to have received adequate
Page iv WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

protection, responses sometimes have been undertaken with little guidance on who should and

should not be doing what. At times this has led to great frustration and strained relations among

those attempting to help. Nevertheless, workshop participants broadly viewed the occurrence of

monk seals in the main Hawaiian Islands as an important opportunity for the speciesí recovery that,

with proper management, also could enrich socioeconomic opportunities for the islandsí human

population. Therefore, they expressed a strong desire to continue assisting response efforts to

ensure that monk seals coexist with people in harmony in the main Hawaiian Islands.

There was broad recognition that, to achieve this end, far more must be done to improve

communication and cooperation and to develop trust and respect among all involved groups. This

was deemed essential for forging effective partnerships. Toward this end, it was recommended that

island coordinators be designated or hired to work closely with local officials, businesses, residents,

environmental groups, and volunteers on how to address local haul-out events. This is needed most

urgently on Kauai, but also would be appropriate on other islands where monk seals haul out less

frequently. Island coordinators should be permanently stationed on the island (or one of the

islands) for which they are responsible. Depending on workloads, they might also help address local

protection and management of sea turtles and perhaps other marine species. It was recognized that

on Kauai monk seal response efforts likely would require the full-time attention of a coordinator for

at least the immediate future because of the frequency with which seals haul out on the island.

To help monitor and manage haul-out events, it was recommended that a single toll-free

telephone number be set up for the public to report monk seal sightings, with the calls or reported

information forwarded to the island coordinators. Based on these reports, the coordinator would

determine who, if anyone, should assess the event to ensure that necessary follow-up actions are

taken. It was noted that extensive involvement by other agency officials and volunteers would be

essential in order to respond quickly and effectively.

To clarify who should be involved and how, it was suggested that those involved in response

efforts be organized into a three-tier system based on assigned duties and required authorizations. It

was suggested that Level 1 include people who would assist with activities that do not involve the

ìtakingî of monk seals as defined under the Marine Mammal Protection Act and the Endangered

Species Act. These tasks might involve posting seal safety zones with signs and yellow tape,

monitoring and recording data on the seals from a safe distance, and public education. Level 2

might include people who could do those activities plus disturb or handle seals for certain limited

purposes, such as assessing potential injuries, herding them out of hazardous situations,

disentangling some seals not seriously entangled or injured, and assisting people involved in Level 3

activities. Level 3 might include handling activities requiring the greatest degree of training and

experience, such as treating injured or sick seals or moving animals to other locations. At each level,

it was recommended that people be instructed as to what they should and should not attempt to do.

Recognizing that (1) activities under Levels 2 and 3 would involve disturbing or handling

seals in ways that would constitute a ìtakingî as defined under the Marine Mammal Protection Act

and the Endangered Species Act, and (2) it is vital to respond quickly to haul-out events ó

particularly when they involve injured or entangled monk seals or births ó it was recommended
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page v

that the Service train and authorize an adequate pool of people on each island to carry out at least

those activities identified under Level 2. Although Level 1 activities would not require formal

authorization, it was felt that the people involved at this level should receive training and a certificate

of participation in recognition of their important role and to ensure that their activities are carried

out in a safe, consistent manner. The greatest number of people would be needed to carry out Level

1 activities, and many of them could be volunteers. Given the importance of promptly posting seal

safety zones, Level 1 efforts by volunteers were recognized as the foundation of the response effort. 

People involved at Level 2 might include federal, state, and local agency officials and some

volunteers. Involvement at Level 3 would be limited to trained professionals.

Other management recommendations included the following:

ï a professional marketing consultant should review existing education materials and efforts to

evaluate their effectiveness;

ï a regular forum should be held to bring together stakeholders to share information and

ensure consistency in outreach messages and information;

ï simple, standardized data sheets based on those used by the National Marine Fisheries

Service should be used to record data on monk seal haul-out incidents, and island

coordinators should be provided computers to record data;

ï officials and volunteers certified or authorized to assist in monk seal response work should

carry identification cards or other means of identifying what they have been certified or

authorized to do;

ï posted seal safety zones should be as small as possible to be effective;

ï the use of physical barriers to limit seal access to areas should be avoided except perhaps to

keep animals off roads;

ï herding or translocating seals should be considered only when (1) seals are ìout of habitatî

and in high-risk situations (e.g., on roads or boat ramps); (2) weaned pups are in high risk

areas where they could acclimate to human attention; (3) seals are in natural habitat but at

risk from an unusual event (e.g., a hazardous substance spill); or (4) seals exhibit aberrant

behavior that poses risks to human safety; and

ï a graduated set of methods should be developed for herding seals to safety such that the

least disruptive methods are tried first.

Implementing Identified Management Options

After identifying recommended management options, workshop participants considered

steps and identified individuals to help implement those measures. With regard to designating onisland coordinators, it was noted that the Division of Aquatic Resources, with funding from the

National Marine Fisheries Service, contracted for a monk seal coordinator to work on Kauai

through at least January 2003. This was considered a very positive step, and it was suggested that

agency or foundation funding be sought to extend that position at least temporarily. To make the

position permanent, it was suggested that (1) the Division of Aquatic Resources continue to explore

the possibility of obtaining a grant from the National Marine Fisheries Service under provisions of

section 6 of the Endangered Species Act, and/or (2) the National Marine Fisheries Service consider

adding such positions as part of its efforts to create a regional office for Hawaii. In either case, as
Page vi WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

workloads allow, it was noted that persons in this position also could assist or possibly, take a lead in

addressing protected species management needs for sea turtles, dolphins, and humpback whales.

Workshop participants also identified other follow-up needs. In this regard, people were

identified to:

ï determine the best approach for establishing a toll-free telephone number for reporting

sightings of monk seals, keeping in mind existing phone numbers for reporting information

on other protected species;

ï identify and pursue procedures to authorize state and federal officials and volunteers to carry

out work, such as herding or disentangling seals, that would constitute a ìtakingî under the

Marine Mammal Protection Act or the Endangered Species Act;

ï define the roles and responsibilities of people involved in haul-out response efforts at each

of several different levels using the three-level system described above as a guide;

ï develop a framework for training people involved at each of the different response levels;

ï develop protocols for activities involving herding, capturing, and moving seals; and

ï explore the formation of a monk seal consortium composed of people and groups involved

in monk seal conservation work to meet annually to share new information on monk seal

research and management and provide advice on needed actions.

Research Needs

Workshop participants identified an extensive list of information needs that research might

address to improve understanding and management of monk seals in the main Hawaiian Islands. 

The list included approximately 50 information needs in the following areas: population dynamics,

life history and ecology; abundance and distribution, foraging and food needs, genetics, health and

disease, interactions between seals and people, and the effectiveness of management activities. It

was suggested that criteria for determining priority needs include whether the research was likely to

change conservation and recovery efforts and what the costs would be in terms of staff needs and

funding. A few priority research topics were suggested, but in the time available they were not fully

discussed, nor was the list considered complete. Those suggested included:

ï assessing the effectiveness of seal safety zone boundaries;

ï tagging all seals;

ï identifying prey species and feeding areas;

ï determining overlap between seal foraging grounds and commercial/recreational

fishing areas;

ï forming a group to help develop a geographic information system on monk seals in

the main Hawaiian Islands;

ï identifying individual seal haul-out patterns and site fidelity; and

ï comparing patterns of human activity and seal habitat use.

It was noted that research priorities for the main Hawaiian Islands would be considered by

the Hawaiian Monk Seal Recovery Team during its ongoing work to update the Hawaiian Monk Seal

Recovery Plan.
1

 Marine Mammal Commission. 2002. Report to the Marine Mammal Commission: Hawaiian Monk Seal Program

Review, Honolulu, Hawaii, 15ñ17 April 2002. Bethesda, MD. 33 pp.

WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 1

Workshop on the Management of Hawaiian Monk Seals

on Beaches in the Main Hawaiian Islands

29-31 October 2002

Koloa, Kauai, Hawaii

I. Introduction

Hawaiian monk seals, one of the worldís most endangered seals, occur principally in the

Northwestern Hawaiian Islands (NWHI). In recent years, however, monk seals have begun hauling

out in increasing numbers in the main Hawaiian Islands to rest, molt, and give birth. Although this

trend raises significant prospects for expanding the speciesí range and increasing its abundance, it

also raises challenging new management issues. Some haul-outs and births have occurred on

popular recreational beaches, particularly on Kauai, where seals have been harassed and disturbed by

people, pets, and feral animals. In at least two cases, seals have bitten swimmers and exhibited

aggressive behavior toward people, and pets and feral animals have bitten seals, raising concern

about the transmission of new diseases to the wild seal population. These issues were identified as

being in need of attention at a review of the Hawaiian monk seal recovery program held by the

Marine Mammal Commission on 15-17 April 2002. The report1 of the review recommended that a

workshop be held as soon as possible to examine the full range of possible management actions that

might be used to respond to monk haul-out events in the main Hawaiian Islands.

To follow up on this recommendation, the Marine Mammal Commission wrote to the

National Marine Fisheries Service and the Hawaii Division of Aquatic Resources on 7 June 2002

asking that they join the Commission in funding and organizing such a workshop. Both agencies

agreed and a workshop organizing committee was formed with representatives of the Commission

(David Laist and Lloyd Lowry), the Service (George Antonelis, Thomas Eagle, and Charles

Karnella), and the Division (Jeffrey Walters). The committee developed terms of reference

(Appendix 1) and an agenda (Appendix 2) for the meeting, identified a list of invited participants and

papers, and oversaw related preparations.

 The workshop, chaired by Lloyd Lowry, was held on 29-31 October 2002 at the Sheraton

Kauai Resort. As noted in the terms of reference, the goals of the workshop were to (1) review

information on monk seal haul-out patterns and their interactions with both people and animals on

beaches, (2) consider existing and potential plans to manage monk seal haul-out events in the main

Hawaiian Islands, and (3) examine research and management actions to mitigate potential adverse

interactions between monk seals and people on beaches in the main Hawaiian Islands. To ensure a

broad perspective, invited participants included representatives of federal, state, and county agencies,

volunteer organizations, environmental groups, the Hawaii tourist and hotel industry, marine
2

 The background papers are listed in Appendix 4 and are available on the Marine Mammal Commissionís web site

(www.mmc.gov) or can be requested by writing to the Marine Mammal Commission, 4340 East-West Highway, Room 905, Bethesda,

MD 20814.

Page 2 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

mammal scientists and veterinarians, and the native Hawaiian community. Seventy people (see

Appendix 3) participated in the workshop.

To help prepare participants for workshop discussions, several papers (see list in Appendix

4) were solicited on monk seal haul-out patterns and behavior, human disturbance of seals, disease

considerations, actions taken to date to respond to monk seal management issues in the main

Hawaiian Islands, possible options for responding to monk seal haul-out events, and an adaptive

management approach. These papers were completed and sent to participants two weeks before the

workshop to allow time to review relevant background information and consider possible

management options. The papers were presented and discussed on the first day of the workshop,

after which participants split into four working groups to discuss details of the identified

management options. Following the working group meetings, participants met in plenary sessions

to discuss the results of the working group sessions, how an effective response effort might be

implemented, and research needs. Results of the workshop are described below.

II. Invited Papers and Presentations

Summaries of background information compiled in papers prepared for the workshop were

presented and discussed on the first day of the meeting2

. The papers, listed in Appendix 4. Key

points raised during the presentations and discussion are described below. 

1. Distribution and Abundance of Hawaiian Monk Seals in the Main Hawaiian Islands

(Jason D. Baker and Thea C. Johanos)

Most recent information on the distribution and abundance of monk seals in the main

Hawaiian Islands comes from aerial surveys conducted in 2000 and 2001 and opportunistic sighting

reports by the public and government officials recorded by the Honolulu Laboratory of the National

Marine Fisheries Service. Aerial counts in the main Hawaiian Islands combined with ground

sightings of seals not seen from the air produced minimum counts of 45 monk seals in 2000 and 52

seals in 2001. When surveying monk seal colonies in the Northwestern Hawaiian Islands, scientists

estimate that 50 to 65 percent of the animals are in the water at any given time and thus are not seen

during an aerial count. Thus, the population is estimated at two to three times the number of seals

counted. Although the NWHI correction factor may not be appropriate for the main Hawaiian

Islands, the data suggest that more than 100 seals may now live in the main Hawaiian Islands ñ a

number that likely equals or exceeds the number of seals on the Midway Islands, which is considered

to be one of the speciesí main breeding sites. The number of documented births in the main

Hawaiian Islands has increased significantly in recent years. Only two births were recorded before

1990, but since then 39 have been documented. Although sightings or births have now been

reported on all of the main Hawaiian Islands, most have been on Niihau and Kauai. Records of

sightings and births tend to decrease along the island chain from Niihau and Kauai in the northwest
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 3

to the island of Hawaii in the southeast. Although incidental reports are biased toward seals sighted

in populated areas, aerial surveys confirm that seals tend to frequent remote areas where human

access is limited. Births occur almost exclusively in relatively remote areas; only one female is

known to have given birth on a popular beach (Poipu, Kauai).

2. The Role of the Main Hawaiian Islands in the Recovery of the Hawaiian Monk Seal

(Timothy J. Ragen)

Hawaiian monk seals evolved 14 to 15 million years ago at which time the Hawaiian

archipelago looked very different than it does today. Because there is no fossil or archeological

evidence of monk seals in the main Hawaiian Islands, it is unclear whether they occurred there prior

to the arrival of the Polynesians. In any case, their recent occurrence in the main Hawaiian Islands

may enhance the prospects for the speciesí recovery. 

Several factors suggest that the increased occurrence of seals in the main Hawaiian Islands

will improve the speciesí prospects for recovery. Monk seals occur as a metapopulation (i.e., a group

of relatively discrete subpopulations) with six major colonies in the NWHI. Historical records

suggest that several of these colonies have disappeared and recovered at various times since the

1800s. A new breeding group in the main Hawaiian Islands could reduce the likelihood of all

subpopulations disappearing at once, and therefore reduce the speciesí risk of extinction. The

occurrence of seals in the main Hawaiian Islands also vastly increases available foraging and haul-out

habitat and greatly expands the speciesí geographic range, thereby decreasing the impact of

catastrophic events that may affect a part of its range. A growing seal population in the main

Hawaiian Islands also will increase the speciesí overall abundance and minimize risks of losing

genetic diversity, which should reduce extinction risks. Against these positive factors is a potential

negative factor ñ the possible introduction of diseases that could decrease the speciesí survival

prospects. That is, diseases transmitted to seals by terrestrial animals not found in the NWHI could

spread throughout the speciesí range.

To date, recovery efforts have focused almost exclusively on monk seals in the NWHI. 

With their increasing occurrence in the main Hawaiian Islands, that focus needs to be expanded. 

Although this occurrence is not without risk to the species as a whole, it could increase the speciesí

chances of long-term survival, increase public awareness and support for monk seal recovery work,

and help improve the speciesí status to a point where it could be downlisted or delisted from the

U.S. endangered and threatened species list. Such prospects could depend in large part on the extent

to which people in the main Hawaiian Islands are willing and able to coexist with monk seals. 

3. Monk Seal Movement and Haul-Out Patterns in the Northwestern Hawaiian Islands

(Albert L. Harting, Thea C. Johanos, and George A. Antonelis)

Because of differences in habitat availability and type, monk seal haul-out patterns in the

NWHI may differ from those in the main Hawaiian Islands. Notwithstanding this uncertainty, interatoll movements and age-specific site fidelity in the NWHI suggest several common trends. Young

monk seals almost always remain at their island of birth. Inter-atoll movements of older animals are
Page 4 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

more frequent, but appear to differ between colonies at the western and eastern ends of the NWHI. 

By age 15, more than 25 percent of seals tagged at colonies in the western end of the NWHI had

moved to other islands (usually the nearest neighboring island), while less than 10 percent of those

in colonies at the eastern end of the chain had moved to other atolls. Considering the distances

between the main Hawaiian Islands, it seems likely that there would be considerable movement of

seals between those islands. 

Monk seals in the NWHI show preferences for pupping, molting, and resting habitat. At the

Midway Islands, for example, females with pups and molting seals tend to segregate from other seals

and use certain sections of beach more frequently than other areas. There also are seasonal shifts in

the sections of beaches used as haul-outs. A variety of factors may influence the selection of haulout sites, including vulnerability to human disturbance and shark predation, exposure to wind and

surf, accessibility from water, proximity to foraging areas, and type of substrate. Females with pups 

appear to prefer haul-outs adjacent to shallow water where shark predation risks may be lower and

on the leeward side of islands where surf action is minimal. Seals can display a great deal of

individuality with some animals likely to use unexpected habitats. 

Based on experience at French Frigate Shoals, limits on prey availability may not cause seals

to move to other islands. However, this atoll also is farther from its neighboring islands than are

other atolls, and this may have limited emigration despite apparent prey limits over the past decade. 

Efforts to capture and move young monk seals suggest that, once moved to another island, they

likely will remain there and not return to their initial capture site.

4. Responses of Monk Seals to Human Disturbance and Handling

(William G. Gilmartin)

Over the past 50 years, trends in the numbers of seals hauling out at Kure Atoll, the Midway

Islands, and Tern Island at French Frigate Shoals have been inversely related to human disturbance. 

At each of these sites, seal numbers declined following occupation by the Coast Guard or the Navy. 

Sources of disturbance included people and vehicles on the beaches and harassment by dogs. After

these sources of disturbance were minimized, monk seal numbers increased at each of these sites,

even though human presence continued. Repeated beach disturbance over time may be an

important reason for seals to abandon otherwise preferred haul-outs. Exposure to noise from very

low flying aircraft does not always alarm or cause hauled-out monk seals to flee into the water. For

reasons that are not clear, seals in the main Hawaiian Islands appear to be more tolerant of human

presence than those in the NWHI. Pups appear to be more tolerant of people than older seals, and

adult males seem more tolerant of people than females, particularly mothers with pups. In the

water, monk seals are much less wary of people and will often approach divers.

Restraining monk seals for purposes of tagging or sedating them to attach telemetry tags and

other scientific equipment does not appear to reduce their subsequent survival rates or alter interatoll movement rates.
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 5

5. Handling Risks and Disease Considerations of Hawaiian Monk Seals in the Main

Hawaiian Islands (Robert C. Braun)

The possible transmission of diseases and pathogens from livestock, pets, and feral animals

to seals is a serious concern. To date, diseases and pathogens have not been linked to any monk seal

population trends. There are few data on monk seal disease exposure in the main Hawaiian Islands,

and seals in the NWHI may have benefitted by their isolation from diseases associated with human

communities. Pathogens known to cause diseases in pinnipeds include heart worm (spread by

mosquitoes and fleas), canine distemper (a virus transmitted by dog or wild animal bites),

leptospirosis (a ubiquitous bacteria in the urine of livestock and rodents), toxoplasma (a single-celled

organism commonly found in cat and dog feces), and brucella (a bacteria found in seals, livestock,

and feral animals). Diseases and pathogens historically less likely to cause disease in pinnipeds

include certain viruses (e.g., herpes, calici, influenza, West Nile, adeno, and corona), salmonella,

chlamydia, and various parasites.

To address potential disease concerns, a surveillance program should be established to

monitor seals in the main Hawaiian Islands for the presence of diseases. All involved agencies and

groups should cooperate in maintaining a vigilant stranding response effort to pick up sick,

moribund, and dead seals for sampling and testing. Contingency plans for responding to unusual

mortality events also should be developed and available to implement promptly if needed. 

6. Legal Requirements under the Marine Mammal Protection Act, the Endangered

Species Act, and State Law (Michael L. Gosliner)

The Marine Mammal Protection Act and the Endangered Species Act impose similar

restrictions on taking of Hawaiian monk seals. Under both Acts, taking includes harassing,

capturing, and killing animals, and restrictions on taking apply to both management activities and

public activities. If hazing, capturing, or otherwise disturbing monk seals is needed to manage monk

seals in the main Hawaiian Islands, taking authorization would be required under both Acts. Under

the Marine Mammal Protection Act, such authorization might be sought through (1) permits for

either scientific research or enhancing the recovery of depleted populations [ß 101(a)(1) and 104(c)];

(2) a waiver of the moratorium on taking [ß 101(a)(3)]; (3) non-lethal deterrence provisions allowing

people to protect their personal safety and property [ß 101(a)(4)]; (4) a ìsmall takeî authorization to

take marine mammals incidental to other lawful activities [ß 101(a)(5)]; (5) a provision allowing

marine mammals to be killed in life-threatening situations [ß 101(c)]; and (6) provisions allowing

public officials to take marine mammals to protect public health and welfare or remove nuisance

animals non-lethally [ß 109(h)]. Each of these alternatives has limitations with regard to authorizing

the capture or moving of monk seals for management purposes, and it is not clear which may be

most appropriate. Another alternative would be to seek an amendment to the Act to specifically

authorize any taking managers might need to pursue. 

Authorization for taking monk seals also would need to be obtained under the Endangered

Species Act. The two most likely approaches would be to seek either a scientific research permit or

an enhancement permit.
Page 6 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

7. Whose Beach Is It Anyway?: Managing Childrenís Pool, La Jolla, California 

(James H. Lecky) 

In the mid-1990s a small, protected beach (about 150 feet wide) set aside as a safe swimming

beach in La Jolla, California, and known as ìChildrenís Pool,î became a haul-out site for more than

60 non-endangered harbor seals. The presence of harbor seals sparked local controversy about

whether they should be deterred from using the beach in order to allow continued public use. The

seals became a popular attraction for tourists and local residents, but their presence also constrained

human use. Restricted water circulation in the area caused by a jetty resulted in elevated seal fecal

coliform counts in adjacent waters. The National Marine Fisheries Service advised city and county

officials that the seals might be removed under authority of section 109(h) of the Marine Mammal

Protection Act to protect public health and welfare and remove nuisance animals. After

considerable public debate, local officials decided not to deter seals from the beach. Instead, rope

barriers and signs have been used successfully to keep people away from the part of the beach used

by seals.

8. Management Experience To Date: National Marine Fisheries Service 

(Margaret A. Dupree)

The National Marine Fisheries Service establishes regulations and guidelines to implement

required protection of Hawaiian monk seals under both the Marine Mammal Protection Act and the

Endangered Species Act. To educate the public about monk seals and related protection needs, the

Service has prepared print and television messages, developed public viewing guidelines, and

produced signs and other information. Since 1991 there have been five high-profile pupping events

in the main Hawaiian Islands. Actions taken to respond to them have included preventing human

approaches within certain distances around mothers-pup pairs, rescheduling beach events, and

moving pups after weaning to more remote locations to reduce interactions with people and

animals. Efforts to install a temporary fence on the beach and a floatline in the water have caused

temporary entanglements of seals, and any further use of such approaches should be examined

carefully. Service staff to respond to haul-out events is limited, and therefore assistance is often

sought from state and county officials and community volunteers. To help in this regard, the

Service has provided signs, posts, and other supplies to help mark safety zones around hauled-out

seals. Actions that may involve taking seals must be weighed against the risks of injuring seals or

exposing them to possible threats at relocation sites.

Other monk seal management actions in the main Hawaiian Islands have included moving

21 adult male seals to the main Hawaiian Islands in 1994, responding to reports of distressed seals

(e.g., eight seals with embedded fish hooks and seven entangled in rope or line since 1999),

responding to hazardous material spills (e.g., oil and fishing gear), and removing a stray elephant seal

from the Hawaiian Islands to eliminate the possibility of disease.
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 7

9. Management Experience To Date: Hawaiíi Department of Land and Natural

Resources (Jeffrey S. Walters and Donald Heacock)

Under state law, the Hawaii Department of Land and Natural Resources is charged with

managing and conserving State marine and fresh water resources. Under this authority, and in

cooperation with the National Marine Fisheries Service and other agencies and groups, biologists in

the Departmentís Division of Aquatic Resources and staff of the Division of Conservation and

Resources Enforcement (DOCARE) are called upon to check reported monk seal haul-outs, enforce

harassment prohibitions, control crowds near seals, educate the public, and assist in tagging, moving,

and disentangling seals. When injured or entangled seals are found, staff and veterinarians from the

National Marine Fisheries Service are called on to respond. In general, the Department seeks to

establish harmony between people and seals and considers monk seals in the main Hawaiian Islands

a cause for celebration, not a problem.

Under state law, monk seal harassment is classified as a misdemeanor. Most reported cases

involve tourists unfamiliar with protection requirements, and very few cases have been prosecuted. 

Public education and outreach efforts have focused on printing and distributing posters and

brochures, holding workshops, and giving talks to the public. It was suggested that a short film on

monk seals be made to show on aircraft arriving in Hawaii or in hotel rooms as a way to reach island

visitors. It also was suggested that (1) greater outreach efforts be made to encourage tolerance of

seals by fishermen, (2) procedures be developed to keep seals off roads and address interactions

between dogs and seals, and (3) a ìgood Samaritanî policy be clarified to allow people to help

distressed seals.

10. Management Experience To Date: Volunteer Monk Seal Watch Programs on Kauai

and Maui (Tim Robinson and Hannah Bernard)

Local citizens on Kauai concerned about monk seal protection have formed a volunteer

Monk Seal Watch Program in cooperation with the Hawaii Department of Land and Natural

Resources and with assistance of the Hawaiíi Wildlife Fund, a 501(c)(3) organization that handles the

programís funds. Their major activities include reporting haul-out events to the Department and the

National Marine Fisheries Service, posting safety zones around seals with signs and yellow tape,

removing those materials after the seal leaves, monitoring hauled-out seals, and educating the public

about monk seal protection needs. To educate the public, program volunteers place information on

monk seals in hotel rooms, prepare articles for local tourist magazines and visitor guides, present

classroom talks, and talk with people at haul-out sites. They also have developed a web page

(www.kauaimonkseal.com). Program volunteers are often the first and only people to respond to

monk seal haul-out events, particularly when seals haul out for a few hours to rest. Such work is

among the most visible to the public and addresses some of the most important protection needs.

In 2001 program volunteers became frustrated with the guidance and direction provided by

the National Marine Fisheries Serviceís Pacific Islands Area Office. This reached a head when

Kauaiís best-known swimming beach was closed for several weeks at the Serviceís behest to protect

a female monk seal and her pup. Local residents and businesses were very upset at the action, monk
3

 Possible Management Response Options for Responding to Hawaiian Monk Seal Haul-Out Events in the Main

Hawaiian Islands, by David W. Laist

Page 8 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

seal watch volunteers were placed at odds with some in the community, and some volunteers

withdrew from the program. This situation underscored the need for greater cooperation and

respect in balancing perspectives among involved parties at local, state, and federal levels.

A similar volunteer monk seal watch program operates on Maui. A potentially controversial

haul-out event occurred on that island when a female monk seal hauled out on a beach where a wind

surfing contest was being held. In that case, the beach was left open with a 50-foot seal safety zone

marked off with yellow tape. People on the beach respected the established line, thereby providing

needed protection for the seal. Avoiding beach closures and relying on marked seal safety zones

whenever possible were considered important for maintaining local support for monk seal

protection.

Among other things, it was noted that current Service guidelines calling for a 150-foot safety

zone around seals may be overly protective and is unrealistic for many beaches where monk seals

haul out, and the guidelines should be modified. It also was suggested that management of monk

seal haul-out events be vested in a local entity. Ideally, a monk seal biologist should be stationed

permanently on an island to oversee response efforts for monk seals and begin to address some of

the many long-term research needs for monk seals in the main Hawaiian Islands. In the long term,

their duties might also include sea turtles and perhaps other protected marine species. The costeffectiveness of a full-time coordinator on Kauai would likely be significant over time for both

research and management purposes. In light of current staffing and funding, it was suggested that

authority over monk seal haul-out events in the main Hawaiian Islands be vested with the Honolulu

Laboratory, rather than the Pacific Islands Area Office, because of the Laboratory staffís greater

knowledge and hands-on experience working with monk seals.

III. Identification of Possible Management Options

Following the presentation of invited papers, workshop participants were asked to review a

list of possible management options to be examined by the working groups. The list was derived

from a paper3

 circulated to participants along with other background papers before the meeting. 

Noting that the working groups would be assigned different subsets of options and asked to identify

criteria and protocols to implement them, the participants were asked for any additions, deletions, or

changes. After a brief discussion, the group agreed that the list as presented was appropriate and the

options were assigned to the four working groups as shown in Table 1.

IV. Recommended Criteria and Protocols for Management Options

On day two of the workshop, four working groups were formed to develop advice on

implementing the suggested management options. The working group reports are provided in

Appendices 5-8. The major findings of each group were then summarized and discussed in a

plenary session.
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 9

Table 1. Possible management options for responding to monk seal haul-out events in

the main Hawaiian Islands

1. Modify existing public education and outreach programs (Working Group A)

2. Modify existing reporting network as necessary (Working Group B)

3. Receive monk seal haul-out report; take no action (Working Group B)

4. Receive monk seal haul-out report; dispatch on-site investigator

to verify and assess situation (Working Group B)

5. Based on site investigatorís findings, take no action (Working Group B)

6. Based on site investigatorís findings, post monitor (Working Group C)

7. Based on site investigatorís findings, establish a no-entry

perimeter around seals/close part of the beach (Working Group C)

8. Based on site investigatorís findings, install a temporary physical

enclosure to contain or protect the seal during a sensitive 

period (e.g., pupping) (Working Group C)

9. Based on long-term seal occurrence patterns, install a

permanent physical barrier to exclude seals from certain land

or water areas (Working Group C)

10. Based on site investigatorís findings, haze seal to discourage

its presence at that location (Working Group D)

10. Based on site investigatorís findings, capture and relocate seals (Working Group D)

11. Based on site investigatorís findings, dispatch rescue/medical

intervention team (Working Group D)

1. Working Group A ó Public Education and Outreach (Appendix 5)

Working Group A noted that education and outreach efforts are vital for increasing public

awareness of monk seal protection needs and preventing problems between seals and people. Given

the limited resources, it urged that the effectiveness of existing outreach materials and efforts be

assessed. It recommended that a professional marketing consultant be sought (pro bono if possible)

to review and evaluate existing materials and efforts, and that a group of education and interpretive

experts involved in related outreach efforts be formed to assist in this review.

The group also noted that there is a need to better coordinate the preparation of educational

materials and target outreach messages. Efforts should be focused on specific audiences within two

primary groups: visitors and residents. As appropriate, brochures, pamphlets, videos, fact sheets,

and inserts in visitors guides should be used, with each translated to foreign languages when

appropriate. Because many visitors mistakenly assume that resting or sleeping seals are dead or

distressed, it is especially important to educate the public about normal monk seal behavior. 

Education efforts by volunteers have been very helpful and should be encouraged; however, closer

ties between volunteers and agency officials are needed. It was recommended that assistance and

recognition of volunteer efforts by the agencies be incorporated into the Hawaiian Monk Seal

Recovery Plan, now being revised. It also was suggested that volunteers be given t-shirts and/or
Page 10 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

identification cards to recognize their role in monk seal protection efforts. It also was noted that a

regular forum should be held to bring together stakeholders to share information and ensure

consistency in outreach messages and information.

As a general matter, Working Group A noted that greater effort was needed to work with

local authorities and residents on decisions concerning measures to protect seals from unleashed

dogs and to establish seal safety zones ñ particularly around mother-pup pairs. It also was

recommended that an individual should be assigned to each island or group of islands to coordinate

local volunteers, businesses, and agency officials when responding to monk seal haul-outs and that

person might also address management events for other marine protected species (e.g., spinner

dolphins or humpback whales) as workloads allow. Because coordinators will need to work closely

with all interested parties and groups, training and experience in building a cooperative team

approach was considered an especially important qualification for this position.

2. Working Group B ó Improve and Maintain a Reporting System/ 

Deploy Site Investigators (Appendix 6) 

Working Group B first considered ways of improving the system for reporting the presence

of monk seals in the main Hawaiian Islands. An effective reporting system is important both for

gathering data on monk seal haul-out patterns and initiating management action. To meet both

purposes, it was suggested that reports of all sightings (both at sea and on land) be encouraged, and

that a toll-free number (e.g., 1-800 SEE-SEAL) be set up so that calls or sighting reports would be

forwarded to an island coordinator. This toll-free number should be advertised in brochures and

other education materials. When a sighting report is received, the first questions to ask are how to

reach the caller (in case the call is cut off), the status of the seal, when and where it was seen, the

proximity of people to the seal, and whether the seal is already in a marked-off area. As possible,

other information on existing data sheets used by the National Marine Fisheries Service should then

be sought. A simple data sheet in electronic or paper form should be used to record reported data. 

If possible, it was suggested that callers be provided information on the seal they are reporting or

advised where to go for further information to make their effort more satisfying. To operate the

system, funding is needed to support a county/island coordinator, a telephone system to receive and

relay sighting reports, and computers to record data. It was also recommended that an annual report

be prepared to summarize information on reported sightings.

Not all reports will require a response (e.g., when the location is unclear, the sighting is not

current, or the sighting has already been reported and addressed). In general, it was noted that

someone should be sent to assess any haul-out reports involving a birth, an injured or entangled seal,

or harassment. For other reports, this decision should be based on the following factors: logistical

considerations (e.g., accessibility of the location or weather conditions), implications for the

community (e.g., people are upset about the presence of the seal or there are public relations

implications); and data needs. It was suggested that people investigating a haul-out report be trained

or have experience in responding to such events, and that the island coordinator and a number of

others be authorized to take action up to, but not including, medical treatment (e.g., moving a seal

out of harmís way, disentangling animals, or disturbing seals to collect necessary information). 
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 11

3. Working Group C ó Post Monitors/Post Seal Safety Zones/

Install Physical Barriers (Appendix 7)

Working Group C concluded that decisions to post monitors or establish seal safety zones

would depend on the circumstances (e.g., the setting and number of seals involved) and the

judgment of site investigators. It was suggested that monitors be posted at a haul-out site when the

seal needs to be assessed for possible follow-up needs. Factors to be considered in this regard

include the sealís health and the presence of people or animals that might harass the seal. People

posted to monitor seals should be informed about the legal implications and receive training in how

to monitor the status of seals, provide information to the public, how to handle truculent people,

and who to call for enforcement, medical, or other types of assistance. 

It was noted that posting seal safety zones is an effective tool, important principally as a way

to inform the public that a seal is present and to help them avoid disturbing the animal. Simple

barriers made of yellow tape, posts, and small signs seem very effective in most situations, especially

when no monitors are present. It was noted that posted zones should not be considered legal

boundaries for purposes of enforcing harassment prohibitions. It was suggested that the size of

restricted areas should be as small as possible, rather than as large as possible, and that boundaries

should be based on the best judgment as to what is needed prevent disturbance in a given situation. 

Individuals who will be involved in setting up restricted areas should be given guidance and training. 

The use of barriers to prevent seals from moving into areas was not considered a good idea

except possibly to keep animals away from particularly hazardous situations, such as roadways.

4. Working Group D ó Haze Seals/Translocate Seals/Medical

Intervention (Appendix 8)

Working Group D concluded that hazing or translocating seals should be a ìlast ditchî

response used only after other means of avoiding adverse interactions have been tried or ruled out. 

It was believed that such efforts should not be used simply because seals are in inconvenient places. 

It was noted, however, that these options might be used in situations such as (1) seals that are ìout

of habitatî or in high-risk areas (e.g., on roads or boat ramps); (2) weaned pups in high-risk areas

where they would acclimate to human attention; (3) seals threatened by an unusual event (e.g., a

hazardous substance spill); and (4) seals exhibiting aberrant behavior that poses risks to human

safety or seal survival. Responses to such events should be graduated, starting with mild harassment

to herd animals away from danger and ranging to translocating animals to other areas as a last resort.

If moving or translocating seals is considered, trained personnel should identify the

individual seals causing the problem, assess their health before moving them, and inform the public

of the need for the action. The working group did not like the term ìhazingî since the purpose was

to make the seal move rather than to distress it. It was recommended that a series of measures, with

increasing levels of intervention, be developed for use in situations when seals must be moved. For

example, the first move might be approaching a seal waving oneís arms and, if that fails, brushing

them with palm fronds. Some techniques are more appropriate for moving mother-pup pairs. With
Page 12 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

regard to translocating seals to another area, the working group did not attempt to identify where

seals should be moved, but did recommend that they not be translocated to the NWHI because of

the risk of transmitting disease to seal populations there. It was noted that weaned pups likely would

stay where they are moved for some period of time, but that older animals may not. Captive

maintenance was not considered a good idea unless intensive care was required to treat a serious

injury.

As a general matter, plans and methods for herding or translocating seals should be

developed in advance and in consultation with stakeholders. It was thought that a sufficient number

of people, including those outside of the National Marine Fisheries Service, should be trained and

authorized to herd seals so that situations requiring such action could be addressed promptly. 

People so authorized should carry identification to help ensure that people attempting to do this

have received appropriate training and authorization. Whenever seals are herded or translocated,

debriefing sessions should be held to determine which methods were effective and which were not. 

E. General Discussion of Management Options

Following presentation of the working group findings, the floor was opened for general

discussion. The comments focused on a need to identify who would be responsible for what actions

when responding to monk seal haul-out events. To better coordinate and organize this work, the

group agreed that an on-island coordinator should be assigned to oversee work by involved

volunteers, local agencies, and businesses on Kauai. This individual might also begin to address

research needs for main Hawaiian Island monk seals and eventually help with issues relative to sea

turtles and perhaps other species, as well as monk seals, depending on workloads. It was noted that

the Hawaii Division of Aquatic Resources, with funding from the National Marine Fisheries Service,

recently contracted with Mr. Shawn Farry to serve this function for monk seals through at least

January 2003. This step was welcomed and endorsed by workshop participants. It was suggested

that coordinators also be identified for other islands or groups of islands, depending on needs.

Certain actions that involve handling or disturbing seals require formal authorization from

the National Marine Fisheries Service under the Marine Mammal Protection Act and the

Endangered Species Act. In this regard, it is particularly important for enforcement officers and

others responding to haul-outs to know who is authorized and trained to do what. To clarify these

roles, it was suggested that a three-tier system be defined. It also was noted, however, that what was

needed most was for people to work together and that a structured system may not be appropriate if

inclusion at different levels becomes a source of competition that divides rather than unites those

involved. With this caution, it was suggested that the following system be considered.

Level 1 responders would include people responsible for work now performed by volunteers

and agency officials that does not involve disturbing or otherwise ìtakingî monk seals. This might

include posting safety zones around resting seals, monitoring seals and collecting data from outside

of seal safety zones, distributing brochures and talking with people at haul-out sites or elsewhere,

and calling others for assistance as needed. Because these actions would be limited to those that did

not involve disturbing or otherwise ìtakingî monk seals, no formal authorization would be required. 
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 13

However, it was felt that these individuals should receive training on how to establish seal safety

zones and collect data without disturbing seals, information to provide the public, who to call for

help with enforcement or distressed seals, etc. In particular, the training should specify precautions

to ensure that their activities do not disturb seals. Those completing the training would be

recognized as ìcertifiedî to respond to monk seal haul-out events, receive a card or other type of

identification (e.g., a t-shirt), be instructed as to what data to collect and how, be provided with

yellow tape and posts to mark seal safety zones, and be placed on a list of people who could be

called to respond to haul-out events.

Level 2 responders would include people authorized to conduct certain activities that involve

the taking of seals, but that do not require extensive training or expertise to perform. Such activities

might involve disentangling some seals caught in ropes or debris (e.g., relatively minor

entanglements that do not involve serious injury), extracting easily removed hooks, herding seals

away from hazardous areas such as roadways or boat ramps, disturbing animals to assess the nature

or extent of injuries, or assisting other people authorized to move or treat injured animals. Having a

number of people on each island with authority, expertise, and local knowledge to respond to these

needs quickly was considered important. Formal authorization from the National Marine Fisheries

Service both under the Marine Mammal Protection Act and the Endangered Species Act would be

required to perform these tasks. Guidance would be needed as to what activities they could and

could not carry out. While most Level 2 responders might be state, county, or federal agency

officials, they also might include Level 1 volunteers interested in being trained to perform tasks at

this level. Level 2 responders might also be contacted as needed to carry out activities defined under

Level 1.

Level 3 responders would involve people trained and experienced in providing medical care,

moving animals, or conducting activities that require a high level of training. They also would

require formal authorization from the National Marine Fisheries Service under the Marine Mammal

Protection Act and the Endangered Species Act and clear guidance as to precisely what activities

they could conduct.

With regard to such a system, it was noted that it was not clear how the Service might

delegate and authorize people to carry out activities under Levels 2 and 3 that would involve the

taking of seals. Concern also was expressed about liability issues if volunteers were involved in

Level 2 or Level 3 activities. However, it was suggested that they might be asked to sign a liability

waiver or be issued a permit that would not encumber liability obligations. 

V. Implementing Identified Management Options

Workshop participants next considered actions to implement the suggested recommendations. To help facilitate follow-up work, participants agreed to help pursue various tasks as

discussed below.

Support for a Monk Seal Coordinator on Kauai: Securing new staff to coordinate and

oversee response efforts was identified as the most important need. It was noted that the Hawaii
Page 14 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

Division of Aquatic Resources, with funding from the National Marine Fisheries Service, recently

contracted Mr. Shawn Farry to serve as a monk seal response coordinator on Kauai through at least

January 2003. Finding support to continue this position on Kauai was considered the highest

priority, although it was noted that establishing such positions on other islands also was important. 

It was noted that island coordinators might also help address local conservation needs for dolphins,

humpback whales, and other protected marine species as their workloads allow. For Kauai,

however, it was noted that monk seals likely would require a coordinatorís full-time attention for the

foreseeable future. Possible sources of funding identified to support the position included

additional short-term funding by government agencies, foundation grants, a grant to the Division of

Aquatic Resources under section 6 of the Endangered Species Act, or the establishment of new

island coordinator positions within the National Marine Fisheries Service as part of its current

efforts to restructure its Hawaiian operations. Jeffrey Walters and staff of the Pacific Islands Area

Office agreed to explore options to obtain funding for the most immediate need (i.e., maintaining an

island coordinator on Kauai).

Improving the Reporting System: It was agreed that steps should be taken to acquire a

single toll-free telephone number for reporting monk seal sightings. This will require coordination

with other protected species hotlines. Thea Johanos, Samantha Whitcraft, and Margaret Dupree

agreed to examine possibilities for establishing such a number and identify steps needed to advertise

it to the public and involved agencies.

Improve Organization of Response Efforts: As a general matter, it was agreed that

people responding to monk seal haul-out events should have clearly specified tasks and

responsibilities and that some of those people should be legally authorized to carry out specific

activities that would constitute a ìtakingî as defined under the Marine Mammal Protection Act and

the Endangered Species Act (e.g., herding or disentangling seals). Samantha Whitcraft, Bud

Antonelis, and Margaret Dupree, in consultation with other involved agencies and groups, agreed to

define the roles and responsibilities for different response levels using the suggested three-tier

system described above as a general guide. To formalize organizational needs on Kauai, it was

suggested that a memorandum of understanding be drafted based on a protocol recently developed

by federal, state, and county agencies and volunteer groups. Those identified to help develop such

an agreement included staff of the Pacific Islands Area Office, Amy Esaki for Kauai County, Shawn

Farry, and Michael Gosliner.

It also was agreed that training programs and manuals should be developed for people

involved in each of the defined response levels. Those programs and materials would include

information on monk seal biology, relevant legal requirements, objective measurable criteria, and

contingency plans for responding to foreseeable management situations. Staff of the Pacific Islands

Area Office, Carl Berg, Samantha Whitcraft, and Bud Antonelis agreed to identify what should be

included in the training programs and manuals and how to develop them. It also was agreed that

staff at the Pacific Islands Area Office, local monk seal volunteers, scientists, and people currently

serving as island coordinators would work on developing protocols for monitoring and assessing

hauled-out monk seals. To address legal authorization for certain tasks, staff of the National Marine

Fisheries Serviceís Pacific Islands Area Office and Office of Protected Resources agreed to resolve
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 15

questions regarding the procedures and mechanisms necessary to delegate authority to involved

people in order to ensure prompt on-site responses to certain foreseeable emergency situations.

Clarify Procedures for Herding, Capturing, and Moving Seals: As indicated above,

people that herd, capture, or move seals must be authorized under the Marine Mammal Protection

Act and the Endangered Species Act. Agreed procedures to carry out these activities also need to be

developed. Bob Braun and Frances Gulland agreed to review and summarize information and

experience on herding, capturing, and moving seals. Staff of the Honolulu Laboratory (Bud

Antonelis) and the Pacific Islands Area Office (Margaret Dupree) agreed to form a group of

consultative experts to develop recommendations and advice on how these activities should be

undertaken. It was also noted that prior to proceeding with these activities, the public should be

informed about why and how seals would be herded, captured, or moved. Staff with the National

Oceanic and Atmospheric Administrationís Office of Public Affairs (Delores Clark) agreed to take

responsibility for this task.

Establish a Formal Mechanism to Exchange Information: To help ensure that people

involved in monk seal protection work have up-to-date and consistent information on the status of

monk seals and monk seal protection efforts in the main Hawaiian Islands, it was suggested that a

monk seal consortium be established, similar to the right whale consortium. The consortium would

include non-governmental researchers and volunteers. Its purpose would be to organize and

convene an annual meeting of involved researchers, volunteers, and agency officials to report on

recent efforts and findings. The consortium could also form an advisory group to provide advice on

research and management needs. Hannah Bernard and Margaret Dupree agreed to investigate steps

necessary to develop such a consortium.

Follow-up and Oversight: To ensure that the identified actions are carried out, an

individual or group would need to be assigned oversight responsibility. Although two possible

entities were identified for this task ñ the Marine Mammal Commission and the Hawaiian Monk Seal

Recovery Team ñ the question of responsibility was not resolved.

VI. Research Needs

Based on discussions, workshop participants were asked to identify research topics that

might be useful or necessary to help understand and manage Hawaiian monk seals in the main

Hawaiian Islands. The resulting list, summarized in Table 2, identified about 50 research topics in

eight general subject areas. 

The participants were then asked to identify priority research topics. As criteria for assessing

priorities, it was noted that consideration should be given to whether the research would alter

conservation or recovery strategies, and to personnel and funding costs. Although a few research

priorities were suggested, there was not sufficient time to discuss or reach agreement on them. 

Priority topics included: 

ï assessing the effectiveness of boundaries for seal safety zones;

(continued on page 18)
Page 16 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

Table 2. Identified research needs concerning Hawaiian monk seals in the main

Hawaiian Islands

Population Dynamics

ï Determine age/sex composition

ï Monitor pup production

ï Determine mortality rates

ï Develop photo-ID catalogue

ï Assess immigration rates

Life History Studies

ï Determine marking techniques

appropriate for use in the main Hawaiian

Islands

ï Mark seals to assess survival, migration,

problem seals, etc.

ï Assess inter-island movements

ï Maintain photo-ID catalogue

ï Assess reproductive rates and histories

ï Determine reproductive senescence

ï Determine age of sexual maturity

ï Assess individual haul-out and site fidelity

patterns

ï Determine predation rates

ï Assess weight and condition at weaning

ï Monitor growth rates and patterns

Abundance and Distribution Studies

ï Maintain public sighting records

ï Develop standardized aerial survey methods

with ground truth

ï Determine correction factor for seals not on

shore during counts in the MHI

ï Conduct standardized seasonal aerial surveys

to monitor trends in beach counts,

distribution, etc.

ï Use GIS to evaluate pupping sites, molting

sites, and haul-out sites 

Foraging Studies

ï Identify prey composition and preferences

and amounts consumed

ï Compare diet with seals in NWHI

ï Evaluate prey for biotoxins

ï Identify foraging habitat by age/sex

ï Assess foraging effort

ï Assess prey availability

ï Use GIS to evaluate seal foraging patterns

Genetics Studies

ï Determine maternity and paternity patterns

(i.e., who is breeding)

ï Assess genetic variation

ï Identify population units/stocks

ï Use genetic markers to determine population

size

ï Determine evolutionary history of the species
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 17

Table 2 (Identified Research Needs continued)

Health and Disease Studies

ï Collect complete samples when seals are

handled for any reason to conduct thorough

health evaluation

ï Determine frequency and effect (including

disease threats) of interactions with feral

animals, pets, and livestock

ï Establish serum/swab sample bank

ï Identify parasites

ï Determine baseline/status of diseases in MHI

seal population

ï Monitor recovery from diseases

ï Assess the potential to prevent disease by

immunization or other methods

ï Assess contaminant loads

ï Conduct vector follow-up if seals are bitten

by dogs or other animals

ï Treat injured seals and maintain database on

injuries

ï Develop protocols for treating seals in

captivity

ï Develop contingency plans for high-risk

events (e.g., ciguatera)

Study Human-Seal Interactions

ï Interactions with fisheries:

Identify where commercial gear is set and

extent of interactions

Identify interactions with fish aggregating devices (FADs)

Assess interactions with recreational

fishing, fishing tournaments

Assess aquaculture interactions

ï Determine the frequency and effect of

interactions with divers

ï Evaluate possible deterrents to keep animals

away from problem areas

ï Identify problem sites where it would be

appropriate to deter seals (e.g., sewage

outfalls, popular beaches, roads, etc.)

ï Evaluate tolerance of seals to humans on siteby-site basis

ï Assess native Hawaiian cultural interests in

seals

ï Assess economic value of seals

ï Determine effects of sound on seals

ï Determine/monitor boat injury risks

ï Determine the frequency and effects of

people feeding seals

Studies of Management Effectiveness

ï Assess effectiveness and optimal size of seal

safety zones

ï Evaluate community compliance with

protection guidelines

ï Conduct a survey of public attitudes toward

seals and seal protection

ï Determine effectiveness of targeted education

and outreach efforts

ï Establish mechanisms for timely

sharing/distribution of information

ï Develop/test methods and devices to deter

seals

ï Determine whether the MHI seal population

is increasing

ï Evaluate degree of research and recovery

activity coordination
Page 18 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

ï tagging all seals;

ï identifying monk seal prey species and feeding areas;

ï determining overlap between seal foraging grounds and commercial and recreational fishing

areas;

ï identifying individual seal haul-out patterns and site fidelity; and

ï comparing patterns of human activity and seal habitat use.

As a general matter, a geographic information system on main Hawaiian Islands monk seals was

identified as an important tool to help address many of the research needs. It also was noted that

the Hawaiian Monk Seal Recovery Team is updating the Hawaiian Monk Seal Recovery Plan, and it

was recommended that research priorities for the main Hawaiian Islands be identified in that plan.
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 19

APPENDIX 1

TERMS OF REFERENCE

Workshop on the Management of Hawaiian Monk Seals

on Beaches in the Main Hawaiian Islands

Background and Purpose

Hawaiian monk seals occur principally in the Northwestern Hawaiian Islands and are one of

the worldís most endangered seals. Their current number, about 1,400 animals, has been stable

since the mid-1990s, but is less than half their abundance in the 1950s. Monk seals are protected

under both the Marine Mammal Protection Act and the Endangered Species Act. The former act

prohibits, with specific exceptions, the taking of all marine mammals regardless of their status. The

latter, with certain exceptions, prohibits the taking of species listed as threatened or endangered,

including Hawaiian monk seals, and also provides protection for habitats that contain elements

essential for their survival and recovery. Under both acts, taking is defined to include non-lethal

forms of harassment as well as the killing or injuring of animals. Management actions to resolve

conflicts between humans and an endangered marine mammal may be authorized under permits for

either scientific research or enhancement of the population.

 Although historical evidence is lacking, it is likely that monk seals once occupied the main

Hawaiian Islands but were extirpated from that portion of their range some time after the arrival of

the Polynesians. Over the past decade, however, reports of Hawaiian monk seals on beaches in the

main Hawaiian Islands have increased. Before 1988, reports of hauled-out monk seals in the main

Hawaiian Islands (other than Niihau) were rare, and only a single birth had been recorded. In the

following decade, reports of monk seal sightings increased, particularly on Kauai, and one to four

births were recorded annually. In recent years, sightings and births have been recorded on all of the

main Hawaiian Islands although most occurrences continue to be on Niihau and Kauai. In 2001, a

record high of 11 births were documented at scattered locations around the main Hawaiian Islands,

and an aerial survey produced a count of 52 monk seals. Considering the number of seals at sea and

not seen during the survey, there may be 150 or more monk seals living throughout the main

Hawaiian Islands. Because the main Hawaiian Islands offer perhaps the only remaining habitat for

new monk seal colonies, their occupation of this area could play an important role in the speciesí

recovery. 

Monk seals haul out on beaches for at least three reasons: to rest, molt, and pup. Although

resting seals may haul out for short periods, molting seals may haul out for a week or more and

mother-pup pairs may occupy a beach for a month or longer. Many beaches in the main Hawaiian

Islands are used by people for recreational purposes. Seals that haul out on moderately to heavily

populated beaches may have a high probability of being disturbed, harassed, or injured by people,

pets, or feral animals. Although the Marine Mammal Protection Act prohibits harassment of monk

seals, people have nonetheless harassed seals on main Hawaiian Islands beaches, both

unintentionally and deliberately. Monk seals also may injure people; on at least two occasions in the

past two years, seals have bitten swimmers in the main Hawaiian Islands. Also, there are
Page 20 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

documented incidents of dogs attacking or biting seals. Such interactions with other animals raise

the possibility of the transmission of diseases or parasites from pets and feral animals through

individual seals to the overall seal population.

With increasing reports of seals using beaches in the main Hawaiian Islands, particularly for

long periods of time to molt or pup, interactions between seals and people have demanded more

and more attention by resource managers. Repeated haul-outs by a few individual seals on heavily

populated beaches have been a source of particular concern. In most cases, managers responding to

haul-out events have cordoned off portions of beaches near seals and posted staff from the National

Marine Fisheries Service and the State of Hawaii or volunteers to monitor the seals and keep people

and animals from approaching too closely. People stationed with seals inform the public about

monk seal behavior, their endangered status, and protection needs. In some cases, these measures

have been insufficient to prevent adverse interactions between seals and people. In one case, a

popular swimming beach was temporarily closed to the public to protect a mother-pup pair. Such

measures can have significant economic impacts on local tourist-based economies and could create

ill-feelings toward seals by the public and local businesses.

Given recent trends in the number of reports of monk seals on main Hawaiian Island

beaches, the need to prevent harmful interactions between monk seals and beachgoers will likely

increase in coming years. To date, clear guidance on how to respond to the range of situations that

may occur has not been developed. In addition, a full range of potential management responses has

not been fully explored. For example, in some cases the best interests of seals and human safety

may be served by discouraging or preventing seals from using certain beaches, while protecting and

encouraging their use of other shoreline areas.

As actions are taken in the future to respond to monk seal haul-out events, they will need to

be evaluated in order to determine whether and how they might be modified to balance monk seal

conservation and human use patterns more effectively. In this way, actions to conserve monk seals

will be implemented through an adaptive management strategy that will evolve over time based on

the accumulation of management experience and ongoing research to better understand the life

history and ecology of monk seals as they reoccupy the main Hawaiian Islands. This workshop is a

step in this process. Its goals are to (1) review information on monk seal haul-out patterns and

interactions between both people and pets and monk seals on beaches, (2) discuss potential plans of

action to address monk seals hauling out in the main Hawaiian Islands, and (3) provide information

about additional research and management actions needed to evaluate interactions between monk

seals and people on beaches in the main Hawaiian Islands. 

Objectives

To meet these goals, sponsoring agencies will convene a group of resource managers, marine

mammal biologists and veterinarians, individuals with experience in managing interactions between

monk seals and people, and representatives of key stakeholder organizations or groups to consider

the following objectives: 

1. Review available information on the occurrence, haul-out patterns, and behavior of resting,

pupping, and molting monk seals in the main Hawaiian Islands and the Northwestern

Hawaiian Islands.
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 21

2. Review information on the response of monk seals to disturbance and its effects.

3. Review actions and experience to date with regard to managing interactions between monk

seals and people on beaches.

4. Review the potential for introducing new diseases or parasites to wild monk seals through

interactions between with pets or feral animals in the main Hawaiian Islands.

5. Review information on the disturbance, handling, and management of seal species other

than monk seals that haul out in places that conflict with public use.

6. Identify the legal framework and permit requirements within which management options

must be developed.

7. Identify and describe potential management approaches and set of protocols for responding

to monk seal haul-out events in the main Hawaiian Islands based on a consideration of

possible risks to both monk seals and people.

8. Identify research needed to develop and assess measures to manage interactions between

monk seals and people on beaches in the main Hawaiian Islands.

9. Prepare a summary report of workshop discussions.
Page 22 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

APPENDIX 2

AGENDA

Workshop on the Management of Hawaiian Monk Seals

on Beaches in the Main Hawaiian Islands

29-31 October 2002

Sheraton Kauai Resort

Koloa, Kauai, Hawaii

808-742-1661

Cosponsored by

Marine Mammal Commission

National Marine Fisheries Service

Hawaii Division of Aquatic Resources

 F Facilitator

Tuesday, 29 October R= Rapporteur

9:30-9:45 Welcome and Introductions Lloyd Lowry

9:45-10:30 Distribution and abundance of Hawaiian monk seals in

the main Hawaiian Islands 

The role of the main Hawaiian Islands in the recovery

of Hawaiian monk seals

Discussion

Jason Baker

Timothy Ragen

10:30-11:00 Monk seal movement and haul-out patterns in the

Northwestern Hawaiian Islands

Discussion

George Antonelis

11:00-11:15 BREAK

11:15-11:45 Responses of monk seals to human disturbance and

handling

Discussion

William Gilmartin

11:45-12:15 Handling risks and disease considerations of Hawaiian

monk seals in the main Hawaiian Islands Discussion
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 23

Robert Braun

12:15-1:45 LUNCH

1:45-2:15 Legal requirements under the Marine Mammal

Protection Act, Endangered Species Act, & state law

Discussion

Michael Gosliner

2:15-2:45 Case Study: Whose beach is it anyway? Managing

seals at Childrenís Pool, La Jolla, California

Discussion

James Lecky

2:45-3:45 Management experience to date with monk seals in the

main Hawaiian Islands

ï National Marine Fisheries Service

ï Hawaii Department of Land and Natural

Resources

ï Kauai Monk Seal Watch Program

Discussion

Margaret Dupree

Jeffrey Walters

Donald Heacock

Timothy Robinson

3:45-4:00 BREAK

4:00-5:00 Working Group Meetings: 

Identification of possible management options

5:00-6:00 Plenary Session:

Working Group reports on list of possible

management options to consider on day 2

John Reynolds ñ F

Jeffrey Walters ñ F

Athline Clark ñ F

Lloyd Lowry ñ F

6:00 ADJOURN DAY 1 

Wednesday, 30 October

8:30-9:00 Plenary Session:

Review and adoption of list of management options

for consideration by Working Groups

Lloyd Lowry ñ F

9:00-12:30 Working Group Meetings: Development of

recommended criteria and
Page 24 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

protocols for

identified

management

options

12:30-2:00

LUNCH

2:00-3:30 Plenary Session:

Reports and discussion of Working Group findings

John Reynolds ñ F

Samantha Whitcraft ñ F

Athline Clark ñ F

Lloyd Lowry ñ F

3:30-3:45 BREAK

3:45-5:00 Plenary Session:

Synthesis and agreement on protocols and criteria for

recommended management options

Samantha Whitcraft ñ F

David Laist ñ R

5:00 ADJOURN DAY 2

Thursday, 31 October

8:30-9:00 Plenary Session:

Summary of agreed protocols and criteria from Day 2

Lloyd Lowry

9:00-10:30 Plenary Session:

Recommended administrative arrangements to

implement protocols and criteria for recommended

management options

Donna Wieting ñ F

John Reynolds ñ R

10:30-10:45 BREAK

10:45-12:30 Plenary Session:

Identification of research needs to implement an

adaptive management approach

Timothy Ragen ñ F

William Gilmartin ñ R

12:30 ADJOURN MEETING
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 25

APPENDIX 3

LIST OF PARTICIPANTS

OC = Workshop Organizing Committee P = Presented Paper

F = Session Facilitator R = Session Rapporteur

Sarah Allen, Ph. D.

Science Advisor

Point Reyes National Seashore

National Park Service

1 Bear Valley Road

Point Reyes, CA 94956

415/464-5187

415/464-5182 (Fax)

sarah_allen@nps.gov

George (Bud) A. Antonelis, Jr., Ph.D. (OC/P)

Chief, Protected Species Investigation

Honolulu Laboratory

National Marine Fisheries Service

2570 Dole Street

Honolulu, HI 96822-2396

808/983-5710

808/983-2902 (Fax)

bud.antonelis@noaa.gov

Jason D. Baker (P)

Zoologist

Honolulu Laboratory

National Marine Fisheries Service

2570 Dole Street

Honolulu, HI 96822-2396

808/983-5711

808/983-2902 (Fax)

jason.baker@noaa.gov

Carl J. Berg, Ph.D.

Senior Scientist

Hawaii Wildlife Fund

P.O. Box 681

Kilauea, HI 96754

808/826-1499

cberg@pixi.com

Ms. Hannah Bernard

Director of Education

Maui Ocean Center

192 Maalaea Road

Wailuku, HI 96753

808/270-7085

hannah@mauioceancenter.com

Mr. Timothy Bodeen

Refuge Manager

Midway Islands National Wildlife Refuge

U.S. Fish and Wildlife Service

P.O. 50167

Honolulu, HI 96850

808/674-8237, Ext. 102

808/674-8237, Ext. 156 (Fax)

timothy_bodeen@fws.gov

Daryl J. Boness, Ph.D. (R)

Senior Scientist/ Head, Department of 

Zoological Research

Smithsonian Institution

National Zoological Park

Washington, D.C. 20001

202/673-4826

202/673-4686 (Fax)

bonessd@nzp.si.edu

Robert Braun, D.V.M.

44-299 Kaneohe Bay Drive

Kaneohe, HI 96744

808/254-8181

808/253-0224 (Fax)

rbraun@lava.net
Page 26 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

Ms. Marlee Breese

Hawaiian Islands Stranding Response Group

41-019 Wailea St., Box 108

Waimanalo, HI 96795

808/291-6434 (Cell)

808/259-5268 (Phone/Fax)

mbreese@lava.net

Mr. Robert Butler

Kauai Monk Seal Watch Program

P.O. Box 697

Hanalei, HI 96714

808/826-5585

808/826-0369 (Fax)

sundown@aloha.net

Ms. Maria Carnevale

Marine Biological Technician

Kalaupapa National Park

P.O. Box 35

Kalaupapa, HI 96742

808/567-6802, Ext. 39

Maria_Carnevale@nps.gov

Mr. Kelvin K. Y. Char

Pacific Islands Area Office

National Marine Fisheries Service

1601 Kapiolani Blvd., Suite 1110

Honolulu, HI 96814

808/973-2937

808/973-2941 (Fax)

kelvin.char@noaa.gov

Ms. Athline Clark (F)

Aquatic Resources Planner

Division of Aquatic Resources

Hawaii Department of Land and

 Natural Resources

1151 Punchbowl Street, Room 330

Honolulu, HI 96813

808/587-0099

808/587-0115

athline@aloha.net

Ms. Delores Clark

Public Affairs Officer, NOAA

C/O National Weather Service

737 Bishop St.

Honolulu, HI 96813

808/532-6411

808/532-5569 (Fax)

delores.clark@noaa.gov

Paul Dalzell, Ph.D.

Senior Scientist

Western Pacific Regional Fishery

 Management Council

1164 Bishop Street, Suite 1400

Honolulu, HI 96813

808/522-6042

808/522-8226 (Fax)

paul.dalzell@noaa.gov

Lt. Frederick C. DeBusca

Kauai Police Department

3060 Umi Street

Lihue, HI 96766

808/241-6780

808/241-6784 (Fax)

Ms. Margaret A. Dupree (P)

Program Analyst

Pacific Islands Area Office

National Marine Fisheries Service

1601 Kapiolani Blvd., Suite 1110

Honolulu, HI 96814-4700

808/973-2937, Ext. 210

808/973-2941 (Fax)

margaret.dupree@noaa.gov

Mr. Eric Eckberg

Kauai Monk Seal Watch Program

P.O. Box 1088

Koloa , HI 96756

808/742-7991

808/742-7846 (Fax)

U4Erik@aol.com
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 27

Ms. Ronalee Eckberg

Kauai Monk Seal Watch Program

P.O. Box 1088

Koloa , HI 96756

808/742-7991

808/635-4354 (Cell)

808/742-7846 (Fax)

U4Erik@aol.com

Ms. Amy I. Esaki

First Deputy County Attorney, County of Kauai

4444 Rice Street, Suite 220

Lihue, Hawaii 96766

808/241-6315

808/241-6319 (Fax)

aesaki@kauaigov.com

Mr. Alan R. Everson

Fishery Biologist

Pacific Islands Area Office

National Marine Fisheries Service

1601 Kapiolani Blvd., Suite 1110

Honolulu, HI 96814-4700

808/973-2937, Ext. 212

808/973-2941 (Fax)

alan.everson@noaa.gov

Mr. Shawn C. Farry

Hawaiian Monk Seal Coordinator - Kauai

Division of Aquatic Resources

Hawaii Department of Land and Natural Resources

PO Box 2034

Puhi, Hawaii 96766

808/651-7668

farrysc@hotmail.com

Judson Feder, Esq.

Office of the General Counsel

National Marine Fisheries Service

801 W. Ocean Blvd., Suite 4470

Long Beach, CA 90802

562/980-4080

judson.feder@noaa.gov

Mr. Robert Fernandez

Oahu Branch Chief

Division of Conservation and

 Resources Enforcement (DOCARE)

Hawaii Department of Land and Natural Resources

1151 Punchbowl St., Room 311

Honolulu, HI 96813

808/587-0066

808/587-0080 (Fax)

Mr. Frank Frazier

Kauai Monk Seal Watch Program

P.O. Box 1764

Koloa, HI 96756

808/264-4708

808/742-1873 (Fax)

frazier@hawaiian.net

Ms. Kathryn (Kathy) J. Frost

73-4388 Paiaha St.

Kailua-Kona, HI 96766

808/325-6885 (Phone/Fax)

kjfrost@eagle.ptialaska.net

Mr. David Gaud

Acting Assistant Chief

Division of Conservation and

 Resources Enforcement (DOCARE)

Hawaii Department of Land and Natural Resources

1151 Punchbowl St., Room 311

Honolulu, HI 96813

808/587-0066

808/587-0080 (Fax)

david_i_gaud@exe.state.hi.us

Mr. William G. Gilmartin (P/R)

Hawaii Wildlife Fund

P.O. Box 70

Volcano, HI 96785-0070

808/985-7041 (Phone/Fax)

bill-gilmartin@hawaii.rr.com
Page 28 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

Joshua Ginsberg, Ph.D.

Director, Asia Program

Wildlife Conservation Society

2300 Southern Boulevard

Bronx, NY 10460

718/220-5884

718/364-4275 (Fax)

jginsberg@wcs.org

Michael L. Gosliner, Esq. (P)

General Counsel

Marine Mammal Commission

4340 East-West Hwy, Room 905

Bethesda, MD 20814

301/504-0087

301/504-0099 (Fax)

mgosliner@mmc.gov

Frances M. D. Gulland, MRVCS, 

 Vet. M.B., Ph.D.

Director of Veterinary Services

The Marine Mammal Center

1065 Fort Cronkhite

Sausalito, CA 94965

415/289-7370

415/289-7376 (Fax)

gullandf@tmmc.org

Kathy M. Hancock, Ph.D.

Maui Community College

P.O. Box 3

Kalaupapa, HI 96742

808/567-6706

khancock02@yahoo.com

Mr. Skippy Hau

Aquatic Biologist, Division of Aquatic Resources

Hawaii Department of Land and Natural Resources

130 Mahalani St.

Wailuku, HI 96793

808/243-5834

808/243-5833 (Fax)

skippy_hau@exec.state.hi.us

Mr. Michael Hawkes

Refuge Manager

Kauai National Wildlife Refuge

U.S. Fish and Wildlife Service

P.O. Box 1128

Kilauea, HI 96756

808/828-1413

808/828-6634 (Fax)

mike_hawkes@fws.gov

Walter R. Hass, D.V.M. 

3113 Oihana St.

Lihue, HI 96766

808/245-2670

808/245-4961

808/245-3755 (Fax)

walterh@aloha.net

lihue.vet@verizon.net

Mr. Donald Heacock (P)

Biologist

Division of Aquatic Resources

Hawaii Department of Land and Natural Resources

3060 Eiwa St., Room 306

Lihue, HI 96766

808/639-7305

donheacock@midpac.net

Rebecca Hommon, Esq.

Regional Counsel

Commander Navy Region Hawaii

850 Ticonderoga Street, Suite 100

Building 150, Room 303

Pearl Harbor, HI 96860-5102

808/473-4731

808/473-2783 (Fax)

hommonrm@hawaii.navy.mil
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 29

Ms. Thea Johanos (R)

Wildlife Biologist

Honolulu Laboratory

National Marine Fisheries Service

2570 Dole Street

Honolulu, HI 96822-2396

808/983-5713

808/983-2902 (Fax)

thea.johanos-kam@noaa.gov

Ms. Denise Jones

Kauai Monk Seal Watch Program

1970 Hanalima St., P260

Lihue, HI 96766

808/246-6806

denisejones616@msn.com

Ms. Susan Kanoho

Executive Director

Kauai Visitors Bureau

4334 Rice Street, Suite 101

Lihue, HI 96766

808/245-3971

808/246-9235 (Fax)

skanoho@hvcb.org

Mr. Randall Kosaki

Northwestern Hawaiian Islands

 Coral Reef Ecosystem Reserve

National Ocean Service

308 Kamehameha Ave, Suite 203

Hilo, HI 96720

808/933-8180

808/933-8186 (Fax)

Randall.Kosaki@noaa.gov

Mr. Patrick Kenney

East District Supervisor

Division of Conservation and 

 Resource Enforcement (DOCARE)

Hawaii Department of Land and Natural Resources

3060 Eiwa St., Room 306

Lihue, HI 96766

808/274-3521

808/274-3523

Mr. David W. Laist (OC/R/P)

Senior Policy and Program Analyst

Marine Mammal Commission

4340 East-West Hwy, Room 905

Bethesda, MD 20814

301/504-0087

301/504-0099 (Fax)

dlaist@mmc.gov

Mr. John Leach

Director of Security

Hyatt Regency Kauai

1571 E. Poipu Road

Koloa, HI 96756

808/742-6203

808/742-6229 (Fax)

jleach@kauaipo.hyatt.com

Mr. James H. Lecky (P)

Chief, Protected Species Management

National Marine Fisheries Service

Southwest Region

501 W. Ocean Blvd., Suite 4200

Long Beach, CA 90802

562/980-4020

562/980-4015 (Direct)

562/980-4027 (Fax)

jim.lecky@noaa.gov
Page 30 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

Ms. Donna Lee

Kauai Monk Seal Watch Program

P.O. Box 581

Kalohea, HI 96714

808/332-9323 (Phone/Fax)

donnalee@gte.net

Mr. Jerry F. Leinecke

Project Leader

Hawaiian Pacific Islands National Wildlife Refuge 

U.S. Fish and Wildlife Service

300 Ala Moana Blvd., Room 5-231

Honolulu, HI 96850

808/541-1201

808/541-1216 (Fax)

jerry_leinecke@fws.gov

Mr. Tarey Low

Branch Chief

Division of Conservation and 

 Resource Enforcement (DOCARE)

Hawaii Department of Land and Natural Resources

3060 Eiwa St., Room 306

Lihue, HI 96766

808/274-3521

808/274-3525 (Fax)

Mr. Lloyd Lowry (Chair, OC/F)

73-4388 Paiaha St.

Kailua-Kona, HI 96766

808/325-6885 (Phone/Fax)

llowry@eagle.ptialaska.net

Ms. Naomi McIntosh (R)

Acting Sanctuary Manager

Hawaiian Islands Humpback Whale

 National Marine Sanctuary

6700 Kalanianaole Hwy., Suite 104

Honolulu, HI 96825

808/397-2651

808/397-2650 (Fax)

naomi.mcintosh@noaa.gov

Mr. Gary D. Moniz

Chief, Division of Conservation and

 Resources Enforcement (DOCARE)

Hawaii Department of Land and Natural Resources

1151 Punchbowl St., Room 311

Honolulu, HI 96813

808/587-0066

808/587-0080 (Fax)

Gary_D_Moniz@exec.state.hi.us

Ms. Suzanne Montgomery

Special Assistant to the Executive Director

Marine Mammal Commission

4340 East-West Highway, Room 905

Bethesda, MD 20814

301/504-0087

301/504-0099

smontgomery@mmc.gov

Joseph Mortenson, Ph.D.

Data Manager

Farallones Marine Sanctuary Association

The Presidio

Box 29386

San Francisco, CA 94129

415/561-6622

jmortenson@farallones.org

Mr. Paul Newman

Office of Law Enforcement

National Marine Fisheries Service

300 Ala Moana Blvd., Room 1-118

Honolulu, HI 96850

808/541-3074

808/541-3166 (Fax)

paul.newman@noaa.gov
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 31

Mr. David Nichols (P)

Pacific Islands Area Office

National Marine Fisheries Service

1601 Kapiolani Blvd., Suite 1110

Honolulu, HI 96814-4700

808/973-2937, Ext. 210

808/973-2941 (Fax)

david.nichols@noaa.gov

Mr. Eugene T. Nitta (R)

Acting Chief

Division of Permits, Conservation

 and Education

National Marine Fisheries Service

1315 East-West Hwy, Room 13805

Silver Spring, MD 20910

301/713-2289

301/713-0376 (Fax)

gene.nitta@noaa.gov

Mr. Stephen Palama

Supervisor

Division of Conservation and 

 Resource Enforcement (DOCARE)

Hawaii Department of Land and 

 Natural Resources

3060 Eiwa St., Room 306

Lihue, HI 96766

808/274-3521

808/274-3525 (Fax)

Ms. Jennifer Palmer

Seasonal Biological Technician

Kewalo Research Facility

National Marine Fisheries Service

c/o Carolyn Cornish

1125 Ala Moana Blvd.

Honolulu, HI 96814

jenpalmer@hotmail.com

Ms. Margy Parker

Executive Director

Poipu Beach Resort Association

P.O. Box 730

Koloa, HI 96756

808/742-7444

808/742-7887 (Fax)

margy@poipu-beach.org

Mr. William Puleloa

Aquatic Biologist

Division of Aquatic Resources

Hawaii Department of Land and

 Natural Resources

P.O. Box 1857

Kaunakakai, HI 96748

808/553-3778

puleloa@aloha.net

Ms. Cha Smith

Executive Director

KAHEA

P.O. Box 27112

Honolulu, HI 96827-0112

808/542-8220

808/524-8221 (Fax)

kahea-alliance@hawaii.rr.com

Ms. Jean Souza

Kauai Sanctuary Liaison

Hawaiian Islands Humpback Whale

 National Marine Sanctuary

4370 Kukui Grove St., Suite 206

Lihue, HI 96766

808/246-2860

808/246-2862 (Fax)

jean.souza@noaa.gov
Page 32 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

Timothy J. Ragen, Ph.D. (P/F)

Scientific Program Director

Marine Mammal Commission

4340 East-West Hwy, Room 905

Bethesda, MD 20814

301/504-0087

301/504-0099 (Fax)

tragen@mmc.gov

John E. Reynolds, III, Ph.D. (F/R)

Senior Scientist

Manatee Research Program 

Mote Marine Laboratory

1600 Ken Thompson Pkwy.

Sarasota, FL 34236

941/388-4441, Ext. 472

941/388-4317 (Fax)

reynolds@mote.org

Mr. Timothy Robinson (P)

Projects Coordinator

Kauai Monk Seal Watch Program

P.O. Box 1836

Koloa, HI 96756

808/246-6806

hmspoipu@msn.com

Mr. Allen Tom

Pacific Regional Coordinator

National Marine Sanctuary Program

726 South Kihei Rd.

Kihei HI 96753

1/800 831-4888

808/874-3815 (Fax)

allen.tom@noaa.gov

Jeffrey S. Walters, Ph.D. (OC/P/F)

Co-Manager

Hawaiian Islands Humpback Whale

 National Marine Sanctuary

Division of Aquatic Resources

Hawaii Department of Land and

 Natural Resources

1151 Punchbowl Street, Room 330

Honolulu, HI 96813

808/584-0106

808/587-0115 (Fax)

jeffrey_s_walters@exec.state.hi.us

Ms. Samantha Whitcraft (F)

Ocean Resources Manager

Kahoolawe Island Reserve

P.O. Box 330644

Kahului, HI 96733

808/264-2842 (Cell)

Samantha-Whitcraft@hotmail.com

Ms. Donna S. Wieting (F)

Chief, Marine Mammal

 Conservation Division

Office of Protected Resources

National Marine Fisheries Service

1315 East-West Highway, Room 13635 

Silver Spring, MD 20910 

301/713-2322, Ext. 108

301/713-0376 (Fax)

dona.wieting@noaa.gov

Ms. Brenda Zaun

Refuge Biologist

Kauai National Wildlife Refuge Complex

U.S. Fish and Wildlife Service

P.O. Box 1128

Kilauea, HI 96756

808/828-1413

808/828-6634 (Fax)

brenda_zaun@fws.gov
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 33

APPENDIX 4

Background Papers Prepared for the Workshop

Papers prepared in advance of the meeting are available on the Marine Mammal Commission web

site (www.mmc.gov) or may be requested by writing to the Commission at 4340 East-West

Highway, Rm. 905, Bethesda, MD 20814.

ìDistribution and Abundance of Hawaiian Monk Seals in the Main Hawaiian Islandsî by Jason D.

Baker and Thea C. Johanos

ìThe Role of the Main Hawaiian Islands in the Recovery of the Hawaiian Monk Sealî by Timothy J.

Ragen

ìMonk Seal Movement and Haul-Out Patterns in the Northwestern Hawaiian Islandsî by Albert L.

Harting, Thea C. Johanos, and George A. Antonelis

ìResponses of Monk Seals to Human Disturbance and Handlingî by William G. Gilmartin

ìHandling Risks and Disease Considerations of Hawaiian Monk Seals in the Main Hawaiian Islandsî

by Robert C. Braun

ìLegal Requirements under the Marine Mammal Protection Act, the Endangered Species Act and

State Lawî by Michael L. Gosliner

ìWhose Beach Is It Anyway?: Managing Seals at Childrenís Pool, La Jolla, Californiaî by James H.

Lecky

ìManagement Approach and Experience to Date with Monk Seals in the Main Hawaiian Islandsî by

Margaret A. Dupree

ìManagement of Monk Seals in the Main Hawaiian Islands by the Hawaiíi Department of Land and

Natural Resources: Current Practices and Hopes for the Futureî by Jeffery S. Walters and Donald

Heacock

ìVolunteer Perspectives on Management Approach and Response Efforts with Hawaiian Monk

Seals on Kauai: Kauai Monk Seal Watch Programî by Tim Robinson

ìPossible Management Options for Responding to Hawaiian Monk Seal Haul-Out Events in the 

Main Hawaiian Islandsî by David W. Laist

ìAdaptive Management of Monk Seals in the Main Hawaiian Islandsî

by Charles Karnella, George A. Antonelis, and Albert L. Harting
Page 34 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

APPENDIX 5

Report of Working Group A

Public Education and Outreach

Working Group Members

John Reynolds ñ Facilitator Millie Johnston

Naomi McIntosh ñ Rapporteur Denise Jones

Hannah Bernard Randy Kosaki

Marlee Breese Sue Kanoho

Delores Clark Jim Lecky

Robert Fernandez Suzanne Montgomery

Josh Ginsberg Tim Robinson

Introduction

Working Group A was asked to review existing public education and outreach programs and

assess their effectiveness in minimizing the risk of adverse interactions between monk seals and

people in the main Hawaiian Islands. They were also asked to consider ways to develop outreach

and educational materials that could enhance the publicís positive feelings about monk seals in the

main Hawaiian Islands.

The Working Group identified three actions essential for delivering well conceived and consistent

messages to all segments of the public that may encounter monk seals: (1) assess cost-effectiveness

and effectiveness of existing public education and outreach programs; (2) create opportunities for

better coordination; and (3) provide a formal mechanism to bring stakeholders together to discuss

issues and share information. 

Assess cost-effectiveness and effectiveness of existing public education and outreach

programs

Education and outreach materials are essential for increasing the publicís awareness about the

status of the Hawaiian monk seal and related protection requirements. However, organizations that

develop these materials have limited financial resources and may not have benefitted from input of

professionals with experience in marketing and public education. Consequently, these products may

not adequately meet current education and outreach needs. Often they are aimed at informing a

general audience and may be too text-heavy or fail to present a consistent message.

The Working Group recommends that steps be taken to identify a consultant to review and

evaluate the effectiveness of existing education and outreach materials and efforts for all interest
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 35

groups. The Working Group further recommends that a group of ocean education and

interpretive experts be included in this review.

Create better opportunities for coordination

Because information needs change, education and outreach must be a continuing and evolving

process. Packaging and disseminating information and translating it into appropriate languages are

an important part of resource protection. Developing effective messages for the right target

audience is key to ensuring that Hawaiiís ocean users are educated users who will act in ways that

will help conserve the resources. 

Education and outreach programs should target both visitors and residents of Hawaii and must

be tailored for the different audiences. Additionally, efforts should be aimed at informing educators

who reach large groups of people. The participants noted that the categories ìvisitorsî and

ìresidentsî are overly broad and perhaps of limited value. Visitors from foreign countries likely will

need information in their native language (the working group stressed the need for materials printed

in Japanese) and that considers differing cultural perspectives. There also is a big difference in

perspective and level of enfranchisement of long-time residents whose ancestors are Hawaiian and

more recent immigrants to the state. 

The primary need for monk seals observed in the main Hawaiian Islands is to prevent their

harassment. Monk seals regularly haul out on shore to rest, sleep, molt, and pup. Some seals stay

ashore for hours to rest and can occupy an area for days or weeks when pupping or molting. 

During these haul-out events, officials often receive reports from the public that a seal appears to be

distressed or stranded. Assuming that they are helping the seal, some people attempt to herd the

animal back into the water. Most often than not, the animal is not in distress; rather it is engaged in

normal resting or sleeping behavior and needs only to be left alone. Education is needed to increase

public awareness and understanding of normal seal behavior, the prohibitions against harassment,

and the consequences to individual animals that may be harassed. Brochures, pamphlets, travel

guides, videos, fact sheets and other interpretive materials in multiple languages are useful in

providing information to visitors and residents who are unfamiliar with normal monk seal behavior

and the speciesí endangered status. 

The work of volunteers can supplement agency efforts to reach larger and more diverse segments

of the community. Volunteer efforts that involve collaborations with other community groups and

organizations lead to success in achieving common goals and mutual benefits. For example, the

Kauai Monk Seal Watch Program helps provide education and public outreach to promote

understanding and appreciation of Hawaiian monk seals. Its work is funded by donations and

includes programs targeting local schools and visitors on Kauai. It promotes education in local

schools at the fourth-grade level through presentations on the Hawaiian monk seal. Visitor outreach

efforts focus on teaching appropriate behavior around seals to minimize harassment of monk seals

on beaches. These efforts need to be better coordinated with agency officials and should be

identified as important elements in the revisions to the monk seal recovery plan. Items that should

be addressed are agency coordination and support, use of docent program, level of training,
Page 36 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

establishing a consistent identity for volunteers (i.e., t-shirts and identification cards), supplemental

funding to continue and enhance volunteer efforts, endorsement of volunteer effort by agencies to

enhance ìbuy in,î and recognition from community, businesses, etc. Additionally, the Kauai Monk

Seal Watch Program needs assistance from agency officials to review and assist in developing new

outreach and interpretive materials. Agency assistance could be provided by a website that reviews

documents, facts, and developments on monk seals that volunteers could incorporate into their

outreach efforts. It should be noted that generally similar programs (e.g., Hawaii Wildlife Fund on

Maui) exist elsewhere in the main Hawaiian Islands.

The working group recommends that responsible agencies take steps to create a formal

mechanism to bring together stakeholders to discuss issues and share information on a regular basis. 

Such meetings could facilitate the development of education and awareness materials, signage, and

procedures that could be standardized among the various groups. 

 

Monk seal pupping on beaches frequented by humans requires additional and adaptive

management strategies beyond that normally associated with haul-outs. Establishing a secure safety

zone for the mother and pup is important because it helps to ensure that the mother does not

abandon her pup due to human disturbance and the public is protected from potential aggression by

the mother protecting her pup. 

In some cases, the National Marine Fisheries Service response to protect seals from human

interaction and unleashed dogs has been to secure ñ or to recommend that local authorities secure ñ

a zone around the mother-pup pair until weaning. The closure of a popular beach can elicit public

frustration over the lack of access for recreation or subsistence purposes and foster resentment

among local residents and business. It is important that protection efforts be done in ways that

ensure (a) as little disruption of local economic or human activities as possible; (b) clear explanations

of the rationale for various protective measures; and (c) opportunities for local ventures (ranging

from volunteer groups to hotels) to learn about, appreciate, and value the occasional presence of

monk seals as a resource rather than as an obstruction. In this regard, the working group

recommended that a public information campaign be created to specifically target local residents. 

Efforts could include featuring local people to help share important messages about protecting

Hawaiiís marine environment, creating opportunities for local residents to monitor seals and thereby

build a sense of local stewardship, installation of permanent signs in areas of known pupping

incidents, and expanding existing education efforts by the State Division of Conservation and

Resources Enforcement.

In addition, a representative should be identified to coordinate and facilitate the roles of involved

groups to prevent miscommunications among the different stakeholders (volunteers; local

businesses; federal, state, and county agencies; and the interested public). Ideally that coordinator

should be an individual with leadership and organizational skills who communicates well with the

various interest groups and who has good credibility with all. There is currently a remarkable lack of

communication and trust among some involved entities, and it is important that this problem be

addressed so that a strong collective effort can be made to protect endangered monk seals while also

allowing human activities to be maintained to the extent possible. 
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 37

Conclusion

Expanding the scope of education and outreach by assessing and evaluating existing efforts,

improving coordination, and providing a formal mechanism to bring stakeholders together on a

regular basis to improve communication would greatly enhance public awareness for the Hawaiian

monk seal in the main Hawaiian Islands. 

Education should be recognized as a front-line conservation tool for mitigating and preventing

harassment of monk seals for all islands. Efforts should also be made to identify agencies (e.g., the

Department of Land and Natural Resources and the Hawaiian Islands Humpback Whale National

Marine Sanctuary) that can help to support and enhance education and outreach efforts.

Additionally, information on who to call to report monk seal incidents should be made more

widely available to the public. 
Page 38 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

APPENDIX 6

Report of Working Group B

Improve and Maintain a Reporting System/Deploy Site Investigators

Working Group Members

Jeff Walters - Facilitator 

Thea Johanos - Rapporteur

Carl Berg

Paul Dalzell

Frederick DeBusca

Shawn Farry

David Gaud

Skippy Hau

Patrick Kenny

David Laist

Joseph Mortenson

David Nichols

Stephan Palama

Jean Souza

Samantha Whitcraft

Improve and Maintain a Reporting System

Working Group B first considered ways to improve the existing system for reporting the

presence of monk seals in the main Hawaiian Islands. Currently, pamphlets, posters, signs, articles,

public service announcements, and telephone books advertise several different numbers to call to

report monk seal sightings, strandings, or enforcement issues. All monk seal sightings reported to

National Marine Fisheries Serviceís Honolulu Laboratory are entered into a database that includes

sighting records from 1983 to present throughout the main Hawaiian Islands. Additionally,

biologists on Kauai (State of Hawaii Department of Land and Natural Resources), Kahoíolawe

(Kahoíolawe Island Reserve Commission), and Kalaupapa, Molokai (National Park Service) maintain

monk seal records from their areas and share that information with the Honolulu Laboratory. 

The existing system evolved without dedicated resources or staffing, and there is uneven data

collection and response to monk seal haul-out events. People may not know that they should report

a monk seal sighting or may become frustrated when they call various numbers in an attempt to find

the right agency. The existence of multiple numbers also is confusing because members of the

public are often unsure how to interpret what they see. For example, they often cannot tell if the

seal in trouble or simply resting. In addition, some numbers are answered only during normal

business hours; others necessitate a toll call to Honolulu or may be answered by a mainland operator

with no pertinent experience. Depending on where the report is placed, information may be

recorded inconsistently or not forwarded to the central database. Every effort is made to respond to

stranding events, but inter-island logistics create delays. In many cases, there is no island

investigator available to respond to reports. 
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 39

An effective reporting system is important for gathering data on monk seal haul-out patterns,

evaluating whether further action is necessary, and initiating management action when warranted. 

Because available information about seals in the main Hawaiian Islands is limited, Working Group B

concluded that reporting all sightings (both on land and at sea) should be encouraged to help

characterize habitat utilization, frequency of occurrence, population composition, and other life

history parameters. Working Group B also concluded that all public reports of monk seal haul-outs

should be relayed to an island coordinator. In this regard, it concluded that island coordinators

should be established for each island (or group of adjacent islands in some cases). Because of the

greater frequency with which seals haul out on popular beaches on Kauai, that island has the greatest

need for a coordinator, and the program should be introduced there. The program could then be

expanded to other islands, with possible modifications depending on the number of monk seal haulout events and related management needs. Island coordinators should be permanently located on

the island (or one of the islands) for which they are responsible to facilitate rapid, timely responses. 

One permanent statewide toll-free number should be established, and calls should be automatically

routed to the cell phone of the local island coordinator. A backup system should insure that callers

can reach a coordinator (or designee) 24 hours a day. 

In cases where sighting reports are made directly to local officials or others (e.g., lifeguards,

Department of Land and Natural Resources biologists and enforcement officers, hotels, local police

and fire departments, monk seal watch volunteers, marine sanctuary offices, etc.), the reports should

be relayed directly to the island coordinator or through the toll-free number. Standard information

should be requested for all sightings. When a sighting is reported, the caller should be asked for

contact information (in case the call is cut off), and then asked about the situation: the sealís health

and condition; when and where it was observed; the presence of people in relation to the seal;

identifying information (size, sex, tags, scars); whether the area has been marked off with yellow tape

or is otherwise being monitored; the accessability of the location; and whether there is

documentation such as photographs or videos. If time allows, the coordinator should provide

information on normal seal behavior, natural history, and the history of the seal (if identified) in

order to make the experience positive for the person making the report. Callers should always be

thanked, and directed to other sources of information, such as a web page.

Reports should be recorded by the island coordinator (or alternate) on a simple form and the

need for follow-up action determined. Any follow-up actions should be documented; all reports

should be logged and entered into the database in a timely manner and data submitted quarterly to

the National Marine Fisheries Serviceís Honolulu Laboratory and all partners. It is recommended

that an annual report be prepared summarizing information on reported sightings and responses.

Deploy Site Investigators

When a sighting report is received, the island coordinator (or designee) would assess the situation

and the need for action. The report may simply be logged without further action if the sighting has

already been reported and addressed, the seal is no longer present, there is inadequate information,

higher priority problems exist elsewhere, or conditions preclude responding (e.g., nightfall, weather,

etc.). When possible, a site investigator should be dispatched to verify and assess the information. 
Page 40 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

A site investigator should always respond when a seal is reported to be in trouble or vulnerable (e.g.,

giving birth, injured, entangled, being harassed, or dead). In cases of a possible stranding or law

enforcement issue, the island coordinator should notify the appropriate agency in advance if at all

possible. Otherwise, the coordinator should assess priorities and respond as possible.

A high priority should be assigned to responding to haul-out events based upon community

needs (e.g., nuisance situations where people are upset about the presence of the seal or events with

public relations implications) and data needs (e.g., sightings of an unknown or immature seal, a new

haul-out site, or unusual seal behaviors). Response priorities also should consider the practicality of

responding due to tide, nightfall, weather, etc.; authorization or permit restrictions; accessibility;

urgency; and availability of personnel and equipment. Because of differing situations and priorities,

Working Group B did not recommend setting a minimum response time for a site investigator to

arrive on scene.

Once on site, the investigator should assess the situation, collect seal information on standard

data sheets used by the Honolulu Laboratory, record GPS (Global Positioning System) location data,

take digital photographs, and collect additional information relevant to seal management (number of

people at the site, presence of dogs, disturbance, etc.). The site investigator would then determine

what follow-up action is necessary (due to a seal in trouble or community need) or that no further

action is warranted. Haul-out events often present opportunities for community outreach and

education and should be taken advantage of when possible. People sent to investigate a haul-out

event should be trained and have experience responding to such events. In situations that may

involve ìtakingî a seal, site investigators should consult immediately with the island coordinator.

All island coordinators (and their alternates) should be qualified, trained, and hold necessary

permits. They should have authority to initiate or assist with responses to entanglements and other

situations up to, but not including, medical intervention (e.g., they should be able to move seals out

of harmís way, disentangle animals, or disturb seals as needed to collect necessary information). If

possible, the Pacific Islands Area Office and the Honolulu Laboratory should be consulted before

any action involving the ìtakingî of a marine mammal (as defined under the Marine Mammal

Protection Act and the Endangered Species Act). If prior notification is not possible, the incident

should be documented and reported to the Service as soon as possible.

Additional site investigators should be trained to evaluate the seal and collect data on routine

haul-out events when ìtakingî a seal is not necessary. Extensive involvement by other agencies and

volunteers will be essential in order to respond quickly and effectively to haul-out events. Clear

roles and training levels should be defined, with authorization clearly indicated by ID cards, t-shirts,

or other means. Island coordinators preferably would have previous experience in handling monk

seals and collecting data (e.g., from working with monk seals in the Northwestern Hawaiian Islands),

but a core team of other trained people should be developed over time, using training opportunities

that arise during local stranding events and management actions.

Funding, personnel, and equipment are needed to implement this reporting system. Needs

include administrative support from above (a lead state or federal administrator and support staff),
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 41

island coordinators, a telephone system to receive and relay sighting reports (toll-free number, cell

phones, forwarding, etc.), response gear (binoculars, digital cameras, GPS units, signs, emergency

equipment), computers and accessories, a web page, and education and outreach materials. 

Implementation and adoption of the new reporting system could be phased in gradually. Once in

place, organizations and agencies would be informed of the new statewide toll-free number so they

can use it and pass it on when they receive monk seal reports. The public would need to be advised

of the new reporting system through an advertising campaign and possibly a kick-off community

event such as ìMonk Seal Day.î Although current phone numbers would need to be maintained for

a while, all new brochures, signs, web pages, and newspaper notices would be designed with a

consistent message and display the new statewide toll-free number.
Page 42 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

APPENDIX 7

Report of Working Group C

Post Monitors/Post Seals Safety Zones/Install Physical Barriers

Working Group Members

Athline Clark ñ Facilitator

Daryl Boness ñ Rapporteur

Jason Baker

Tim Bodeen

Margaret Dupree

Alan Everson

Frank Frazier

Kathy Frost

Shawn Farry

Kathy Hancock

Rebecca Hommon

Jerry Leach

Tracy Low

Joe Mortenson

William Puleloa

Tim Ragen

Post Monitors

The working group began by discussing what is involved in monitoring and what is involved in

assessment. It became clear that currently procedures differ among the various islands, and that, to

some extent, the process might need to differ. Kauai has one of the best developed systems, in part

because seals frequently use popular public beaches. The initial report of a hauled-out monk seal

may go to an enforcement entity or directly to the monk seal watch network. Experienced monk

seal watch volunteers do a preliminary telephone follow-up to determine whether an individual

should respond (e.g., is the seal likely still hauled out, etc.). If deemed necessary, the response begins

with the initial observation, followed by notification of enforcement officials, and then

establishment of a monk seal watch effort if one appears to be needed. The well-developed

volunteer effort on Kauai provides an capability for monitoring that may not yet be available at

other sites.

What constitutes an adequate response differs from island to island. On Oahu,

monitoring/response procedures are not well developed although this is needed. The Navy, for

example, would like to have a more formal protocol for responding to monk seals in waters where

they may be at risk due to military operations or otherwise require extra monitoring and protection. 

On Molokai, no formal monitoring program has been established, but the biologists who keep track

of monk seals have extensive monitoring experience. Because the beaches are not heavily used for

human activities, extensive monitoring is not required at present. On Maui, monk seals that haul out

on the beach are monitored by local monk seal watch. This program will require further

development as the number of seals at this site increases. On Hawaii, few sightings of monk seals

occur, and they are often in remote areas. The development of a response/monitoring program on

this island is likely to be needed as the number of sightings increases.
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 43

Initial Assessment: The working group then discussed the initial assessment to be made when

a monk seal is observed hauled out and remains on the beach. The purpose of an initial assessment

should be to assess (1) the seal (e.g., its age, condition), (2) the situation (e.g., is the seal in an area

where human interactions are likely?), and (3) the need for monitoring or intervention. The initial

assessment should address simple but important questions, such as:

ï Is the seal is apparent good health? 

ï Is it in an area populated by humans?

ï Is it near a point that humans use for access to the beach?

ï Is there a potential for interaction? and

ï Is the seal safe?

Answers to these questions should lead to the next actions, which may include a decision to post

a seal safety zone, monitor the seal while it is ashore, or call on additional expertise or authority. If

the seal appears healthy and in an unpopulated area, the only action that may be needed is to report

it to the appropriate authorities. If the seal appears injured or otherwise distressed, other experts

will need to be contacted, and the seal should be monitored until further evaluation can occur. If the

seal appears healthy, but is in a populated area with a high potential for interactions with people, a

monitoring plan will be needed, which should be coordinated with the appropriate authorities

(federal, state, and local). In some cases, monitoring may not be possible due to logistical reasons

even though the situation might warrant it. 

The Role of Monitoring: If monitoring is deemed necessary, it should aim to accomplish a

number of specific objectives, such as:

ï Continuously assess the status of the seal (or seals);

ï Continuously assess the situation;

ï Erect markers to separate the seal from the public, if necessary. Monitors should be cautioned

not to try to enforce the exclusion zone if people are belligerent and instead to contact

enforcement officials; 

ï Provide the public with information about the natural history, ecology, and status of the seals,

and about the reasons they should not interact with them;

ï Serve as the eyes and ears for responsible agencies; and

ï Serve as a center for communication. Monitors need to have effective means of communicating

with appropriate management and enforcement agencies. 

Training needs for monitoring personnel: To meet the above objectives, the working group

concluded that monitors should receive at least some training, including the following:

ï Information on the life history and behavior of monk seals, their status, their susceptibility to

disturbance, and the importance of the main Hawaiian Islands to their recovery;

ï General information about the laws pertinent to seal management and the constraints imposed by

those laws on interactions with the seals;
Page 44 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

ï Conflict resolution, particularly as it regards varying opinions about beach use in the presence of

seals; and

ï Safety guidelines that may apply in monitoring situations.

To train monitors, manuals containing the above information and any additional information

deemed important to these functions should be provided. Monitors also should be educated

through periodic workshops to ensure they have the benefit of up-to-date, accurate information. 

New monitors should spend some time with experienced volunteers. Some form of educational

handouts should be available to give the public. Monitors should be easily identified from the

general public (e.g., a special t-shirt or jacket).

Post Seal Safety Zones

Perimeters around a haul-out site may serve several functions, and it is important to distinguish

among these. Some may simply demarcate an area deemed necessary to protect a seal from human

presence and disturbance, assuming people are respectful of the seal and the need not to harass it. 

Others may actually serve a legal function for enforcement purposes. Working group members

thought the latter should be erected under the direction of enforcement or suitable legal authorities.

When barriers or perimeters are established, they should be as simple as possible to achieve their

desired purpose. They are not appropriate in every situation and will depend on the sealís condition,

behavior, and status and the haul-out setting. However, as the appropriate size of the barrier needed

is not always obvious, it should be erected in a precautionary manner.

 

Whenever appropriate, signs should be erected to provide information for anyone who may

encounter a monk seal hauled out on a beach. Signs convey important information and should be

considered an educational tool as well as a way to establish guidelines for appropriate human

behavior around seals.

Install Physical Barriers

Permanent physical barriers may be erected to keep seals out of high-use areas. The consensus

was that such permanent barriers are not practical or useful, as they often result in an unintended

restriction of other activities. Nevertheless, they may be useful in some situations, such as in areas

where roads are adjacent to beaches, and fences are needed to keep the seals from straying onto the

roads. In the future, however, permanent physical barriers may play a more important role as the

number of seals increases in the main Hawaiian Islands. It would behoove responsible authorities to

anticipate the need for such barriers in the future so that they can prevent unsafe situations from

arising.

General Comments

A formal network is needed to coordinate the activities of all those involved in responding to and

monitoring monk seal haul-out events. That network should describe the lines of communication,
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 45

the transfer of information, protocols for interacting within the network, and the means for

addressing public needs with respect to response/monitoring efforts. The network should also

serve as a means of collecting important information about monk seals in the main Hawaiian

Islands, and the resulting databases will require careful development to address future information

needs.

In general, descriptions and lines of authority need to be clarified ñ perhaps through another

workshop. Guidelines, regulations, responsibilities, and authorities should be, but are not now welldescribed. This is important in order to ensure that everyone involved in responding to a haul-out

acts within the scope of their authority. 

 

Clearly, greater cooperation and communication will be required.
Page 46 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

APPENDIX 8

Report of Working Group D

Haze Seals/Translocate Seals/Medical Intervention

Working Group Members

Lloyd Lowry - Facilitator

Gene Nitta - Rapporteur

Sarah Allen - Rapporteur

Bud Antonelis

Bob Braun

Maria Carnevale

Bill Gilmartin

Mike Gosliner

Frances Gulland

Don Heacock

Donna Lee

Jerry Leinecke

Gary Moniz

Don Palawski

Jennifer Palmer

Donna Wieting

To determine whether and when steps should be taken to intervene in a monk seal haul-out

event, the working group first identified and considered the following questions: 

1. What are the criteria for taking action?

2. What methods should be used?

3. What are the qualifications, training, authorization required for participants?

4. How should success be measured?

5. Does a pup at weaning stage always get moved if on a public beach?

6. Should seals be hazed out of particular areas?

If so, what are the criteria for decision-making?

If we proceed, which methods should be used?

7. Who decides and who acts?

In general, the group felt that hazing, moving, or medically treating seals are options of last

resort, regardless of the sealís age, sex, or reproductive status. Prior to moving any seals, steps must

be taken to identify appropriate relocation sites. In all cases of human intervention, good records

should be maintained on the actions taken and the results. An action plan for Kauai could be a

model for the other main Hawaiian Islands since there is such high use by seals and high interaction

rates. The group also noted that, in some cases, barriers like those used at Kealia, Maui, for sea

turtles could be used to keep seals out of high-risk areas or out of high human-use sites (e.g. keiki

beaches).
4

 Editors Note: In view of this point, the term ìherdî is used in place of the term haze in the body of this report except in

section titles. It has been retained in the titles because that was the term identified in agenda for this concept.

WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 47

Haze Seals to Discourage Their Use of Certain Beaches

The working group did not like the term ìhazeî because of its meaning to purposely inflict

discomfort, which is not the purpose or intent of this management option. Rather, what is intended

is to get seals to move to a safer location with the least possible discomfort or disruption. Although

a suitable alternative term for this concept was not identified, the group felt that another term

should be used.4

Assuming that less intrusive actions and responses (e.g., posting signs, posting monitors,

installing barriers, etc.) have been tried and have not adequately addressed the situation, the working

group believed that herding animals could be appropriate when:

ï a seal is out of habitat, particularly in high human use areas (e.g., boat ramps, harbors, parking

lots, roads);

ï the sealís safety is a concern. For example, it must be moved due to immediate danger (i.e., Navy

bombing site, oil spill, construction) or in cases where a weaned pup is on heavily used, high-risk

beach or area where hazardous recreational or commercial fishing activities occur nearby

(especially with high-risk gear such as gillnets and shoreline pole and line fishing.); or

ï human safety is a concern due to aberrant or aggressive seal behavior and other measures, such as

education and barriers, have been ineffective.

With regard to the methods to be used, the working group recommended that a graduated

approach be used, starting with minimal actions and escalating based on the response of the seal and

the circumstances, such that there is least disturbance and least chance of injury to the seal. For

example, it was suggested that herding start with hand waving, then brushing with palm fronds, and

if neither of those methods worked, then touching with a stick and using boards to direct the animal. 

In herding seals, problem areas should be isolated and seals herded to a low-risk area. It was also

noted that careful documentation of the methods used and responses was important because some

trial and error may be necessary. After any action to herd an animal, a debriefing should be held to

document and assess the effectiveness of the action and the methods used.

Other factors that should be addressed when considering whether to herd an animal are the

following: age, sex, and reproductive status; health and condition; and historical and potential future

use of the habitat by both people and seals. With respect to economic considerations, more could

be done to optimize economic opportunities when seals are present and management actions are

taken in high-visibility areas, such as at resorts and state or county beaches.
Page 48 WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS

Capture and Move Seals to Another Location

As a general matter, it was noted that translocating seals to new locations has been most

successful and effective with weaned pups compared to other age classes of seals. With regard to

criteria for capturing and moving seals, the working group believed that, if repeated efforts to herd

seals had proven unsuccessful, then the same criteria noted above for herding seals should be used

to decide whether to translocate a seal to a new area. At a minimum, any action plan to either herd

or translocate a seal should include the following:

ï an education effort to inform public of all decisions, actions, and needs;

ï contact with all stakeholders, including landowners;

ï consideration of the animalís age and sex (this may not be an important factor for most herding

decisions, but needs to be taken into account in translocation decisions);

ï actions to mark or identify the seal (e.g., with dye, a tag, radiotags, or satellite tag) so it can be

tracked;

ï a health assessment of the seal;

ï selection of the methods to be used (the methods should be those that are least disruptive and

have the least chance of injury to achieve the desired result); and

ï guidance on how many times to herd seals before deciding to translocate them.

It also was noted that relocation sites must be identified in advance. In this regard, the working

group recommended that seals not be moved to the Northwestern Hawaiian Islands because of the

potential to spread disease and affect the areaís metapopulation structure. Instead, the group

believed the relocation sites should be within the main Hawaiian Islands in areas that present low

risks to seals, preferably at remote sites. In some cases, such as when seals exhibit an aberrant

behavior, it was noted that they may need to taken into captivity. 

Once it is decided a seal should be translocated, the working group recommended that the

following steps be taken:

ï the National Marine Fisheries Service should conduct an internal consultation;

ï consideration should be given to convening an expert group if needed;

ï the public should be informed of the action and why it is necessary;

ï the history of past translocations should be reviewed (these should be available on the Serviceís

website ñ the techniques and standards for translocations already exist);

ï an implementation plan should be developed, including a timeline with 15- minute intervals; and

ï after each translocation, a debriefing should be held to document and assess the procedures and

their effectiveness.

.

Planning Needs/Infrastructure

The working group felt that separate sets of standards, qualifications, training programs, and

authorization should be established for people involved in herding seals and translocating seals. It
WORKSHOP ON HAWAIIAN MONK SEALS IN THE MAIN HAWAIIAN ISLANDS Page 49

also recommended that individuals involved in the marine mammal and sea turtle stranding network

receive training in herding seals. The group also identified the following specific needs:

ï qualified individuals with local knowledge and presence to be authorized participants;

ï an ability to respond and communicate efficiently with all involved parties;

ï appropriate authorizations from federal, state, and local agencies for all identified participants

(perhaps identification cards or named on a list with a letter);

ï agreement on the levels of involvement, coordination, and communication for all agencies and

volunteers;

ï resolution of liability issues for responders and the general public;

ï identification of landowners and beach access permission where needed; and

ï establishment of consultation protocols before and after management actions are taken

(protocols to depend on the action and/or situation).

To assess the success of herding or translocation actions, the working group noted that it was

essential to identify the involved seal for tracking purposes using scar cards/photos, dye, or tags. It

also noted that standard data collection and reporting protocols should be developed for all

participants and that debriefing plans be followed after each herding or translocation event.

Medical Intervention (Rescue and Medical Treatment)

It was noted that the level of intervention needed to resolve entanglements or situations in which

seals are found with fish hooks embedded in lips, limbs, etc., may vary depending on the severity of

the entanglement or hooking, the level of experience and expertise of responder(s), the

surroundings/habitat, and the availability of equipment and personnel. The National Marine

Fisheries Service has existing procedures in place to address medical interventions for monk seals,

and efforts are being made to increase the number and training of qualified personnel (i.e.,

veterinarians), including the training of new veterinarians, state and local officials, and volunteers. 

The level of training will depend on factors such as expertise, experience, and anticipated level of

participation.

For seals requiring rehabilitation (abandoned pup or sick animal), available and appropriate

facilities need to be identified in advance as part of a complete rehabilitation plan. Standards for

medical interventions should also be developed as part of this plan. Disentangled seals also may

require rehabilitation and/or translocation to appropriate habitat.