Source: https://www.federalregister.gov/documents/2008/12/17/E8-29761/taking-and-importing-marine-mammals-us-navy-training-in-the-jacksonville-range-complex
Timestamp: 2017-09-23 03:08:34
Document Index: 361790157

Matched Legal Cases: ['§\u2009216', '§\u2009218', '§\u2009218', '§\u2009218', '§\u2009218', '§\u2009218', '§\u2009218', '§\u2009218', '§\u2009218', '§\u2009216', '§\u2009218', '§\u2009216', '§\u2009218', '§\u2009218', '§\u2009218', '§\u2009218', '§\u2009218', '§\u2009216', '§\u2009218', '§\u2009218', '§\u2009218', '§\u2009218', '§\u2009218', '§\u2009216', '§\u2009218', '§\u2009216', '§\u2009218', '§\u2009218', '§\u2009216', '§\u2009218']

76578-76605 (28 pages)
E8-29761
https://www.federalregister.gov/d/E8-29761 https://www.federalregister.gov/d/E8-29761
The Navy's mission is to maintain, train, and equip combat-ready naval forces capable of winning wars, deterring aggression, and maintaining freedom of the seas. Section 5062 of Title 10 of the U.S. Code directs the Chief of Naval Operations to train all naval forces for combat. The Chief of Naval Operations meets that direction, in part, by conducting at-sea training exercises and ensuring naval forces have Start Printed Page 76579access to ranges, operating areas (OPAREAs) and airspace where they can develop and maintain skills for wartime missions and conduct research, development, test, and evaluation (RDT&E) of naval weapons systems.
The JAX/CHASN OPAREA encompasses 50,219 nm2 (172,246 km2) of ocean area within the SAB. The western boundary of the JAX/CHASN OPAREA is located approximately 3 nm (5.56 km) off the southeast U.S. coast. This shoreward boundary ranges from waters southwest of the New River, North Carolina to waters just north of the Indian and Banana River Complex, Florida.
Missile Exercise (MISSILEX) (Air to Surface) MH-60R/S, SH-60B, HH-60H AGM-114 (Hellfire missile) 70 sorties (70 missiles)
P-3C, and P-8A AGM-65 (Maverick missile) 3 sorties (3 missiles)
(2) Mine countermeasures: Crews practice “countering” simulated enemy mines to permit the maneuver of friendly vessels and troops. “Countering” refers to both the detection and identification of enemy mines, the marking and maneuver of vessels and troops around identified enemy mines and mine fields, and the disabling of enemy mines. A subset of mine countermeasures is mine neutralization. Mine neutralization refers to the disabling of enemy mines by causing them to self-detonate either by setting a small explosive charge in the vicinity of the enemy mine, or by using various types of equipment that emit a sound, pressure, or a magnetic field that causes the mine to trip and self-detonate. In all cases, actual explosive (live) mines would not be used during training events. Rather, mine shapes are used to simulate real enemy mines. In the JAX Study Area, MIW training/MINEX events include the use of explosive charges for one type of mine countermeasures and neutralization training: underwater detonations of mine shapes by Explosive Ordnance Disposal (EOD) divers. Table 2 below summarizes the levels of mine warfare/mine exercises planned in the JAX Range Complex for the proposed action.Start Printed Page 76580
Mine Neutralization EOD 20 lb charges 12 events
FIREX with IMPASS CG, DDG 5″ gun (IMPASS 10 events (390 rounds)
Small Arms Training (explosive hand grenades) Maritime Expeditionary Support Group (Various Small Boats) MK3A2 anti-swimmer grenades (HE) 1-2 hours 96 events (80 grenades)
A number of different types of boats would be used depending on the unit using the boat and their mission. Boats are mostly used by Naval Special Warfare (NSW) teams and Navy Expeditionary Combat Command (NECC) units (Naval Coastal Warfare, Inshore Boat Units, Mobile Security Detachments, Explosive Ordnance Start Printed Page 76581Disposal, and Riverine Forces). These units would be used to protect ships in harbors and high value units, such as aircraft carriers, nuclear submarines, liquid natural gas tankers, etc., while entering and leaving ports, as well as to conduct riverine operations, insertion and extractions, and various naval special warfare operations.
Start Printed Page 76582
Although ship strikes may result in the mortality of a limited number of whales within a population or stock, Start Printed Page 76583Laist et al. (2001) also concluded that, when considered in combination with other human-related mortalities in the area (e.g., entanglement in fishing gear), these ship strikes may present a concern for whale populations.
The features of perceived sound (e.g., amplitude, duration, temporal pattern) are also used to judge whether the sound exposure is capable of producing a stress response. Factors to consider in Start Printed Page 76584this decision include the probability of the animal being naive or experienced with the sound (i.e., what are the known/unknown consequences of the exposure).
Numerous behavioral changes can occur as a result of stress response. For each potential behavioral change, the magnitude in the change and the severity of the response needs to be estimated. Certain conditions, such as stampeding (i.e., flight response) or a response to a predator, might have a probability of resulting in injury. For example, a flight response, if significant enough, could produce a stranding event. Each altered behavior may also have the potential to disrupt Start Printed Page 76585biologically significant events (e.g., breeding or nursing) and may need to be classified as Level B harassment. All behavioral disruptions have the potential to contribute to the allostatic load. This secondary potential is signified by the feedback from the collective behaviors to allostatic loading.
The exercises that use explosives in this request include: FIREX with IMPASS, MISSILEX, MINEX, and Small Arms Training (explosive hand grenades). Table 6 summarizes the number of events (per year by season) and specific areas where each occurs for each type of explosive ordnance used. For most of the operations, there is no difference in how many events take place between the different seasons. Fractional values are a result of evenly distributing the annual totals over the four seasons. For example, there are 70 Hellfire events per year that can take place in MLTR during any season, so Start Printed Page 76586there are 17.5 events modeled for each season.
MLTR Hellfire 17.5 17.5 17.5 17.5
MLTR Maverick 0.75 0.75 0.75 0.75
BB, CC 5″ rounds 0** 0** 20 5
UNDET North 20 LB 1.25 1.25 1.25 1.25
UNDET South 20 LB 1.25 1.25 1.25 1.25
Small Arms Training 80
UNDET North MK3A2 anti-swimmer concussion grenade (0.5 lbs NEW) 10 10 10 10
UNDET South MK3A2 anti-swimmer concussion grenade (0.5 lbs NEW) 10 10 10 10
Level B ZOI @ 177 dB re 1 μPa2 sec (multiple detonations only)
Level A ZOI @ 205 dB re 1 μPa2 sec or 13 psi
BB, CC 6.1397** 3.7773 0.16464
**In this area, which occurs in shallow water, the 177 dB re 1 microPa2 sec behavioral disturbance criteria dominates over the 23 psi criteria and therefore was used in the analysis.
Level B ZOI @ 182 dB re 1 microPa2-sec 0.2 km2 ± 25% 0.8 km2 ± 25%
Modeling was completed for two of the explosive missiles involved in MISSILEX, each assumed detonation at 1-m (3.3 ft) depth. The NEW used in simulations of the Hellfire and Maverick missiles are 8 lbs and 80 lbs, respectively. The single explosion TTS-energy criterion (182 dB re 1 microPa2-sec) was used to determine the ZOI for the Level B exposure analysis. Table 9 shows the ZOI results of the model estimation. The total ZOI, when multiplied by the animal densities and total number of events (Table 6), provides the exposure estimates for that animal species for each specified missile. Because of the time lag between detonations, it is highly unlikely, even if a marine mammal were present (not accounting for mitigation), that the marine mammal would be within the small exposure zone for more than one detonation. MISSILEX is only conducted in one area, the Missile Laser Training Area (MLTR) in the JAX Range Complex. Ships will not fire on the target until the area is clear of marine mammals, and will suspend the exercise if any enter the buffer area. Implementation of mitigation measures like these reduce the likelihood of exposure and potential effects in the ZOI.Start Printed Page 76588
MLTR Hellfire 0.89 0.73 0.64 0.73 0.02 0.02 0.02 0.02 <0.01 <0.01 <0.01 <0.01
MLTR Maverick 0.91 0.91 0.79 0.91 0.11 0.07 0.07 0.11 <0.01 <0.01 <0.01 <0.01
Adult porpoise - RAP = 434 WE0.28
20 ft. whale - RW = 327 WE0.28
(R = range in feet, WE = weight of explosive in pounds)
Start Printed Page 76589
MISSILEX training NA 31 1 0
FIREX training 23 NA 1 0
Total Exposures 23 33 2 0
FIREX training 10 NA 0 0
MINEX training NA 2 0 0
Total Exposures 10 5 0 0
Total Exposures 1 1 0 0
Start Printed Page 76591
Note: Events were either modeled for 177 dB re 1 microPa2 sec due to multiple detonations (MISSILEX and FIREX) or modeled for 182 dB re 1 microPa2 sec or 23 psi due to single detonations (MISSILEX and MINEX). Therefore, for FIREX the NA refers to the criteria that were less dominant and therefore not used in the analysis. For MISSILEX and MINEX the NA refers to the fact that these events are not multiple detonations and therefore not modeled at 177 dB re 1 microPa2 sec.
A quantitative explosive analysis was conducted to estimate the exposure of marine mammals to impacts from ordnance use associated with small arms training. The explosive ordnance used in small arms training includes the MK3A2 anti-swimmer concussion grenades. A very low NEW (0.5-lbs) is associated with this ordnance. These detonations occur in the very shallow waters (< 30 m, or 98 ft) of the UNDET North and South boxes and detonate at a depth of no greater than 3 m (9.8 ft). Most of the marine mammal species that may occur in the JAX Range Complex are known to occur in waters with depths of less than 30 m (98 ft).
Using the 114 yd (104 m) “safe range” calculated for the MK3A2 anti-swimmer concussion grenades as a representative ZOI (0.034 km2), potential exposures were calculated. No exposures for any marine mammal species were estimated.
Atlantic spotted dolphin 56 2 0
Bottlenose dolphin 15 0 0
Pilot whale 1 0 0
Risso's dolphin 3 0 0
Start Printed Page 76592
For the past few years, the Navy has implemented marine mammal spotter training for its bridge lookout personnel on ships and submarines. This training has been revamped and updated as the Marine Species Awareness Training (MSAT) and is provided to all applicable units. The lookout training program incorporates MSAT, which addresses the lookout's role in environmental protection, laws governing the protection of marine species, Navy stewardship commitments, and general observation information, including more detailed information for spotting marine mammals. MSAT has been reviewed by NMFS and acknowledged as suitable training. MSAT may also be viewed on-line at https://portal.navfac.navy.mil/​go/​msat
10. Floating weeds, algal mats, Sargassum rafts, clusters of seabirds, and jellyfish are good indicators of marine mammals. Therefore, increased vigilance in watching for marine mammals will be taken where these are present.Start Printed Page 76593
11. Navy aircraft participating in exercises at sea will conduct and maintain, when operationally feasible and safe, surveillance for marine species of concern as long as it does not violate safety constraints or interfere with the accomplishment of primary operational duties. Marine mammal detections will be immediately reported to assigned Aircraft Control Unit for further dissemination to ships in the vicinity of the marine species as appropriate where it is reasonable to conclude that the course of the ship will likely result in a closing of the distance to the detected marine mammal.
The coastal waters off the Southeast United States (SEUS) support the only known calving ground for the North Atlantic right whale (NARW). In 2006, the Navy, U.S. Coast Guard (USCG), U.S. Army Corps of Engineers (USACE), and NMFS entered into a Memorandum of Agreement pursuant to the Endangered Species Act. The Early Warning System (EWS) is a result of that agreement and is a collaborative effort which involves comprehensive aerial surveys conducted daily, weather permitting, during the North Atlantic Right Whale calving season. East/west transects are flown from shoreline to approximately 30-35 nm offshore. Aerial surveys are conducted to locate NARW and provide whale detection and reporting information to mariners in the NARW calving ground in an effort to avoid collisions with these endangered species. When a NARW is sighted, information from the aerial survey aircraft is passed to a ground contact. The ground contact e-mails the sighting information to a wide network distribution which includes Fleet Area Control and Surveillance Jacksonville (FACSFAC JAX), the USCG, the USACE and non-profit and commercial interests. In addition, the ground contact will follow up with a call to FACSFAC JAX to provide additional information if required. FACSFAC JAX records this valuable information and disseminates to all navy vessels and aircraft operating in the consultation area through the Secret Internet Protocol Router Network (SIPRNET) system. General sighting information and reporting procedures are broadcasted over the following methods: the NOAA weather radio; USCG NAVTEX system Start Printed Page 76594and a Broadcast Notice to Mariners over VHF marine-band radio channel 16. The EWS is a wide communication effort to ensure all vessels are aware of the most recent right whale sightings as an avoidance measure.
8. FIREX with IMPASS will only be used in Beaufort Sea State three (3) or less.Start Printed Page 76595
9. The visibility must be such that the fall of shot is visible from the firing ship during the exercise.
(i) Visual surveillance of 2 events per year. The primary goal will be to survey Start Printed Page 76596two different types of explosive events with one of them being a multiple detonation event.
(iii) The array would need to detect low frequency vocalizations (< 1,000 Hz) for baleen whales and relatively high frequency vocalizations (up to 30 kHz) for odontocetes such as sperm whales. The use of two simultaneously deployed arrays can also allow more accurate localization and determination of diving patterns.
The Navy will respond to NMFS comments on the draft comprehensive report if submitted within 3 months of receipt. The report will be considered final after the Navy has addressed NMFS' comments, or three months after the submittal of the draft if NMFS does not comment by then. To implement the aforementioned monitoring measures, the Navy is developing an Integrated Comprehensive Monitoring Program (ICMP) for marine species in order to assess the effects of training activities on marine species and investigate population-level trends in marine species distribution, abundance, and habitat use in various range complexes and geographic locations where Navy training occurs. Although the ICMP is intended to apply to all Navy training, use of mid-frequency active (MFA) sonar in training, testing, and research, development, test, and evaluation (RDT&E) will comprise a major component of the overall program.
In the Assessment of Marine Mammal Response to Anthropogenic Sound section, NMFS' analysis identified the lethal responses, physical trauma, sensory impairment (permanent and Start Printed Page 76597temporary threshold shifts and acoustic masking), physiological responses (particular stress responses), and behavioral responses that could potentially result from exposures from explosive ordnance. In this section, we will relate the potential effects to marine mammals from underwater detonation of explosives to the MMPA regulatory definitions of Level A and Level B Harassment and attempt to quantify the effects that might occur from the specific training activities that the Navy is proposing in the JAX Range Complex.
TTS - As discussed previously, TTS can effect how an animal behaves in response to the environment, including conspecifics, predators, and prey. The following physiological mechanisms are thought to play a role in inducing auditory fatigue: effects to sensory hair cells in the inner ear that reduce their sensitivity, modification of the chemical environment within the sensory cells, residual muscular activity in the middle ear, displacement of certain inner ear membranes, increased blood flow, and post-stimulatory reduction in both efferent and sensory neural output. Ward (1997) suggested that when these effects result in TTS rather than PTS, they are within the normal bounds of physiological variability and tolerance and do not represent a physical injury. Additionally, Southall et al. (2007) indicate that although PTS is a tissue injury, TTS is not because the reduced hearing sensitivity following exposure to intense sound results primarily from fatigue, not loss, of cochlear hair cells and supporting structures and is reversible. Accordingly, NMFS classifies TTS (when resulting from exposure to underwater detonations) as Level B Harassment, not Level A Harassment (injury).
Criteria and thresholds for estimating the exposures from a single explosive activity on marine mammals were established for the Seawolf Submarine Shock Test Final Environmental Impact Statement (FEIS) (“Seawolf”) and subsequently used in the USS Winston S. Churchill (DDG-81) Ship Shock FEIS (“Churchill”) (DoN, 1998 and 2001a). NMFS adopted these criteria and thresholds in its final rule on unintentional taking of marine animals occurring incidental to the shock testing (NMFS, 2001a). Since the ship-shock events involve only one large explosive at a time, additional assumptions were made to extend the approach to cover multiple explosions for FIREX (with IMPASS). In addition, this section reflects a revised acoustic criterion for small underwater explosions (i.e., 23 pounds per square inch [psi] instead of previous acoustic criteria of 12 psi for peak pressure over all exposures), which is based on the final rule issued Start Printed Page 76598to the Air Force by NMFS (NMFS, 2005c).
For injury, the Navy uses dual criteria: eardrum rupture (i.e. tympanic-membrane injury) and onset of slight lung injury. These criteria are considered indicative of the onset of injury. The threshold for tympanic-membrane (TM) rupture corresponds to a 50 percent rate of rupture (i.e. 50 percent of animals exposed to the level are expected to suffer TM rupture). This value is stated in terms of an Energy Flux Density Level (EL) value of 1.17 inch pounds per square inch (in-lb/in2), approximately 205 dB re 1 microPa2·sec.
The TTS energy threshold for explosives is derived from the Space and Naval Warfare Systems Center (SSC) pure-tone tests for TTS (Schlundt et al., 2000, Finneran and Schlundt, 2004). The pure-tone threshold (192 dB as the lowest value) is modified for explosives by (a) interpreting it as an energy metric, (b) reducing it by 10 dB to account for the time constant of the mammal ear, and (c) measuring the energy in 1/3-octave bands, the natural filter band of the ear. The resulting threshold is 182 dB re 1 microPa2-sec in any 1/3-octave band. The energy threshold usually dominates and is used in the analysis to determine potential Level B exposures for single explosion ordnance.
The threshold is based on test results published in Schlundt et al. (2000), with derivation following the approach of the Churchill FEIS for the energy-based TTS threshold. The original Schlundt et al. (2000) data and the report of Finneran and Schlundt (2004) are the basis for thresholds for behavioral disturbance (without TTS). As reported by Schlundt et al. (2000), instances of altered behavior generally began at lower exposures than those causing TTS; however, there were many instances when subjects exhibited no altered behavior at levels above the onset-TTS levels. Regardless of reactions at higher Start Printed Page 76599or lower levels, all instances of altered behavior were included in the statistical summary.
The behavioral disturbance (without TTS) threshold for tones is derived from the SSC tests, and is found to be 5 dB below the threshold for TTS, or 177 dB re 1 microPa2-sec maximum energy flux density level in any 1/3-octave band at frequencies above 100 Hz for toothed whales and in any 1/3-octave band above 10 Hz for baleen whales. As stated previously for TTS, for small explosives (<1500 lb NEW), as what was modeled for this analysis, the spectrum of the shot arrival is broad, and there is essentially no difference in impact ranges for whales. The behavioral disturbance (without TTS) impact range for FIREX with IMPASS can, especially in shallower water, be about twice the impact range for TTS.
Starting with a sound source, the attenuation of an emitted sound due to propagation loss is determined. Uniform animal distribution is overlaid onto the calculated sound fields to assess if animals are physically present at sufficient received sound levels to be considered “exposed” to the sound. If the animal is determined to be exposed, two possible scenarios must be considered with respect to the animal's physiology - effects on the auditory system and effects on non-auditory system tissues. These are not independent pathways and both must be considered since the same sound could affect both auditory and non-auditory tissues. Note that the model does not account for any animal response; rather the animals are Start Printed Page 76600considered stationary, accumulating energy until the threshold is tripped.
The Navy is preparing an Environmental Impact Statement (EIS) for the proposed JAX Range Complex training activities. A draft EIS was released for public comments from June 27 - August 11, 2008, and it is available at http://www.jacksonvillerangecomplexeis.com/​. NMFS is a cooperating agency (as defined by the Council on Environmental Quality (40 CFR 1501.6)) in the preparation of the EIS. NMFS has reviewed the Draft EIS and will be working with the Navy on the Final EIS (FEIS).
(a) Under Letters of Authorization issued pursuant to §§ 216.106 of this chapter and 218.16, the Holder of the Letter of Authorization may incidentally, but not intentionally, take marine mammals within the area described in § 218.10 (b), provided the activity is in compliance with all terms, conditions, and requirements of this subpart and the appropriate Letter of Authorization.
(b) The activities identified in § 218.10 (c) must be conducted in a manner that minimizes, to the greatest extent practicable, any adverse impacts on marine mammals and their habitat.
(c) The incidental take of marine mammals under the activities identified in § 218.10 (c) is limited to the following species, by the indicated method of take the indicated number of times:
(a) Take any marine mammal not specified in § 218.11 (c);
(b) Take any marine mammal specified in § 218.11 (c) other than by incidental take as specified in § 218.11(c)(1) and (2);
(c) Take a marine mammal specified in § 218.11 (c) if such taking results in more than a negligible impact on the species or stocks of such marine mammal; or
(a) When conducting training activities identified in § 218.10(a), the mitigation measures contained in the Letter of Authorization issued under § 216.106 of this chapter and § 218.16 must be implemented. These mitigation measures include (but are not limited to):
(C) Lookout training shall include on-the-job instruction under the supervision of a qualified, experienced watchstander. Following successful completion of this supervised training period, lookouts shall complete the Personal Qualification Standard Program, certifying that they have Start Printed Page 76602demonstrated the necessary skills (such as detection and reporting of partially submerged objects).
(3) During the North Atlantic right whale calving season north-south transits through the critical habitat are prohibited, except for those exercises that necessarily operate at a slow, safe speed. Naval vessel transits through the area shall be in an east-west direction, and shall use the most direct route available during the calving season.Start Printed Page 76603
(a) The Holder of the Letter of Authorization issued pursuant to Start Printed Page 76604§ 216.106 of this chapter and § 218.16 for activities described in § 218.10(b) is required to cooperate with the NMFS, and any other Federal, state or local agency monitoring the impacts of the activity on marine mammals.
(b) The Holder of the Authorization must notify NMFS immediately (or as soon as clearance procedures allow) if the specified activity identified in § 218.10(b) is thought to have resulted in the mortality or injury of any marine mammals, or in any take of marine mammals not identified in § 218.10(c).
(iii) The array shall need to detect low frequency vocalizations (< 1,000 Hz) for baleen whales and relatively high frequency (up to 30 kHz) for odontocetes such as sperm whales. The use of two simultaneously deployed arrays can also allow more accurate localization and determination of diving patterns.
(f) JAX Range Complex Comprehensive Report The Navy shall submit to NMFS a draft report that analyzes and summarizes all of the multi-year marine mammal information gathered during explosive exercises for which individual reports are required in § 218.14 (e). This report will be submitted at the end of the fourth year of the rule (November 2012), covering activities that have occurred through June 1, 2012.
(3) Requirements for mitigation, monitoring and reporting.Start Printed Page 76605
(a) A Letter of Authorization issued under § 216.106 of this chapter and § 218.16 for the activity identified in § 218.10(c) will be renewed annually upon:
(1) Notification to NMFS that the activity described in the application submitted under § 218.15 will be undertaken and that there will not be a substantial modification to the described work, mitigation or monitoring undertaken during the upcoming 12 months;
(2) Timely receipt of the monitoring reports required under § 218.14(b); and
(3) A determination by the NMFS that the mitigation, monitoring and reporting measures required under § 218.13 and the Letter of Authorization issued under § 216.106 of this chapter and § 218.16, were undertaken and will be undertaken during the upcoming annual period of validity of a renewed Letter of Authorization.
(b) If a request for a renewal of a Letter of Authorization issued under § 216.106 of this chapter and § 218.17 indicates that a substantial modification to the described work, mitigation or monitoring undertaken during the upcoming season will occur, the NMFS will provide the public a period of 30 days for review and comment on the request. Review and comment on renewals of Letters of Authorization are restricted to:
(b) If the Assistant Administrator determines that an emergency exists that poses a significant risk to the well-being of the species or stocks of marine mammals specified in § 218.10(b), a Letter of Authorization issued pursuant to § 216.106 of this chapter and § 218.16 may be substantively modified without prior notification and an opportunity for public comment. Notification will be published in the Federal Register within 30 days subsequent to the action.