Source: https://www.federalregister.gov/documents/2003/05/09/03-11613/taking-and-importing-marine-mammals-taking-marine-mammals-incidental-to-missile-launch-operations
Timestamp: 2017-09-26 10:10:53
Document Index: 135638034

Matched Legal Cases: ['art 930', '§\u2009216', '§\u2009216', '§\u2009216', '§\u2009216', '§\u2009216', '§\u2009216', '§\u2009216', '§\u2009216', '§\u2009216']

Comments must be postmarked no later than June 23, 2003. Comments will not be accepted if submitted via e-mail or the Internet.
68 FR 24905
24905-24913 (9 pages)
Docket No. 030421095-3095-01
03-11613
https://www.federalregister.gov/d/03-11613 https://www.federalregister.gov/d/03-11613
NMFS has received an application from the U.S. Navy requesting a Letter of Authorization (LOA) for the harassment of small numbers of pinnipeds incidental to missile launch operations from San Nicolas Island, CA (SNI). By this document, NMFS is proposing regulations to govern that take. In order to issue the LOA and issue final regulations governing the take, NMFS must determine that the taking will have a negligible impact on the affected species and stocks of marine mammals, will be at the lowest level practicable, and will not have an unmitigable adverse impact on the availability of the species or stock(s) for subsistence uses. NMFS invites comment on the application and the regulations.
Comments should be addressed to the Chief, Marine Mammal Conservation Division, Office of Protected Resources, National Marine Fisheries Service, 1315 East-West Highway, Silver Spring, MD 20910-3226. A copy of the application and a list of references used in this document are available and may be obtained by writing to this address or by telephoning the contact listed here (see FOR FURTHER INFORMATION CONTACT).
Start Further Info Start Printed Page 24906
Permission may be granted for periods of 5 years or less if the Secretary finds that the taking will be small, have a negligible impact on the species or stock(s) of affected marine mammals, and will not have an unmitigable adverse impact on the availability of the species or stock(s) for subsistence uses, and if regulations are prescribed setting forth the permissible methods of taking and the requirements pertaining to the monitoring and reporting of such taking. NMFS has defined “negligible impact” in 50 CFR 216.103 as:
Under section 3(18)(A), The MMPA defines “harassment” as:
Airborne noise measurements are usually expressed relative to a reference pressure of 20 micro-Pa, which is 26 dB above the underwater sound pressure reference of 1 micro-Pa. However, the conversion from air to water intensities is more involved than this and is beyond the scope of this document. NMFS recommends interested readers review NOAA's tutorial on this issue: http://www.pmel.noaa.gov/​vents/​acoustics/​tutorial/​tutorial.html. Also, airborne sounds are often expressed as broadband A-weighted (dBA) or C-weighted (dBC) sound levels. A-weighting refers to frequency-dependent weighting factors applied to sound in accordance with the sensitivity of the human ear to different frequencies. With A-weighting, sound energy at frequencies below 1 kHz and above 6 kHz are de-emphasized and approximates the human ear's response to sounds below 55 dB. C-weighting corresponds to the relative response to the human ear to sound levels above 85 dB. C-weight scaling is useful for analyses of sounds having predominantly low-frequency sounds, such as sonic booms.
In general, launch vehicles are the Vandal and a variety of other supersonic and subsonic missiles and targets. Most other vehicles used would be similar in size and weight or slightly smaller and would have characteristics generally similar to the Vandal. However, NAWS also has requested a marine mammal take authorization for up to 3 launches annually for vehicles that may be larger than the Vandal, but would be under 50,000 lbs (23,000 kilograms (kg)) in weight.
The Vandal (designated MQM-8G) target missile is a relatively large, air-breathing (ramjet) vehicle with no Start Printed Page 24907explosive warhead that is designed to provide a realistic simulation of the mid-course and terminal phase of a supersonic anti-ship cruise missile. These missiles are 7.7 m (25.2 ft) in length with a mass at launch of 3,674 kg (8,100 lbs) including the solid propellant booster. There are variants of the Vandal; they all have the same dimensions, but differ in their operational range. The Vandals are remotely controlled, non-recoverable missiles. At launch, the Vandal is accelerated for several seconds by a solid propellant rocket booster to a speed sufficient for the ram-jet engine to start. After several seconds of thrust, the booster is discarded, falls into the water of the Sea Range, and the Vandal continues along its flight path at supersonic speed under ramjet power.
On March 11, 2003 (68 FR 11527), NMFS published a notice of receipt of the Navy's application for a small take authorization and requested comments, information and suggestions concerning the request and the structure and content of regulations to govern the take. During the 30-day public comment period, NMFS received comments from the Marine Mammal Commission (Commission) and the Stop LFAS Worldwide Network (Stop LFAS). The Commission supports NMFS' intent to publish proposed small take regulations for the Navy's activities on SNI provided that the mitigation and monitoring activities described in the NAWS petition for regulations are incorporated into the proposal.
Comment 1: The Stop LFAS states that underwater marine impacts due to missile testing will not be known unless an environmental impact statement is prepared.
Response: In March, 2002, the NAWCWD prepared and released to the public a Final Environmental Impact Statement/Overseas Environmental Impact Statement on the NAWCPNS Point Mugu Sea Range activities (Final EIS). This Final EIS analyzed in detail the potential for impacts on marine mammals including the Eastern North Pacific gray whale. In addition, on August 9, 2001 (66 FR 41834), NMFS released an Environmental Assessment/Finding of No Significant Impact on the issuance of a small take authorization for Vandal and other rocket and missile launches at SNI in 2001. The potential for gray whales (or other cetaceans) to be taken by harassment, injury or mortality is virtually nonexistent for several reasons, including low numbers offshore of SNI (< 10 percent of population), seasonality (spring/autumn), transitory behavior (non-feeding) off SNI, infrequent and low number of missile launches, airborne noise levels less than levels that could potentially cause temporary threshold shift (TTS), and a narrow window (maximum of 13 degree radius from perpendicular from the launch vehicle) for sound penetration into the water (i.e., almost all sounds hitting the water surface are reflected). For information on calculating “take” levels and the potential for marine mammals to be taken by this activity, please refer to the Navy's Final EIS on this action.
Comment 2: The Stop LFAS noted that in 2001, the State of California's Coastal Commission (CCC) did not have the benefit of information which has since come about as a result of recent litigation regarding noise issues and the potential harm which noise may have on marine mammals. Therefore, there is a need for greater environmental scrutiny than may have been suspected by the CCC over two years ago.
Response: On February 14, 2001, the CCC concluded that, with the monitoring and mitigation commitments the Navy has incorporated into their various testing and training activities on the Point Mugu Sea Range, including activities on SNI, and including the commitment to enable continuing CCC staff review of finalized monitoring plans and ongoing monitoring results, the activities are consistent with the marine resources, environmentally sensitive habitat and water quality policies (Sections 30230, 30240, and 30231) of the California Coastal Act. Federal regulations implementing the Coastal Zone Management Act (CZMA; 15 CFR part 930.46(a)) instituted procedures for supplemental coordination if, among other reasons, there is significant new information relevant to the proposed activity and its effect on any coastal use or resource. NMFS is unaware of any significant new information that would warrant supplemental coordination, but NMFS has forwarded this document to the CCC for review.
Comment 3: The Stop LFAS asked “whatever monitoring would there be to gauge underwater responses from submerged marine life? How do we know that panic and death would not be assured?”
Response: See response to comment 1. Essentially, most airborne noise will be reflected at the water surface, significantly limiting penetration into the water column. Also, since the airborne sounds are less than would cause TTS, and propagation of those sounds that penetrate the water surface would quickly reduce to insignificant levels, it is unlikely that any cetacean would be affected by launch noises. Therefore, underwater monitoring is not considered necessary. However, NMFS would welcome suggestions on how to establish a practical monitoring program given the infrequency of both launches, low density of offshore marine mammals and the need to ensure personnel safety during launches.
Many of the beaches in the Channel Islands provide resting, molting or breeding places for species of pinnipeds including: northern elephant seals (Mirounga angustirostris), harbor seals (Phoca vitulina), California sea lions (Zalophus californianus), northern fur seals (Callorhinus ursinus), and Steller sea lions (Eumetopias jubatus). On SNI, three of these species, northern elephant seals, harbor seals, and California sea lions, can be expected to occur on land in the area of the proposed activity either regularly or in large numbers during certain times of the year. Descriptions of the biology and distribution of these three species and others in the region can be found in NAWS (2002), Stewart and Yochem (2000, 1994), Sydeman and Allen (1999), Lowry et al. (1996), Schwartz (1994), Lowry (1999) and several other documents (Barlow et al., 1997; NMFS, 2000; NMFS, 1992; Koski et al., 1998; Gallo-Reynoso, 1994; Stewart et al., 1987). General information on harbor seals and other marine mammal species found in Central California waters can be found in Caretta et al. (2001, 2002), which are available at the following URL: http://www.nmfs.noaa.gov/​prot_​res/​PR2/​Stock_​Assessment_​Program/​ sars.html. Please refer to those documents and the application for further information on these species.
Noise generated from aircraft and helicopter activities associated with the Start Printed Page 24909launches may provide a potential secondary source of incidental harassment of seals and sea lions. The physical presence of aircraft could also lead to non-acoustic effects on marine mammals involving visual or other cues. There are no anticipated effects from human presence on the beaches, since movements of personnel are restricted near the launch sites two hours prior to launches for safety reasons.
A conservative estimate of the SEL at which TTS (Level B harassment) may be elicited in harbor seals, California sea lions and northern elephant seals has been determined to be 145 dB (re 20 micro-Pa2 -sec) and 165 dB (re 20 micro-Pa2 -sec), respectively (Lawson et al., 1998). The sound levels necessary to elicit mild TTS in captive California sea lions and harbor seals exposed to impulse noises, such as sonic booms, were tens of decibels higher (Bowles et al., 1999) than sound levels measured during Vandal launches (Burgess and Greene, 1998; Greene, 1999). This evidence, in combination with the known sound levels produced by vehicles launched from SNI (described later in this document), suggests that no pinnipeds will be exposed to TTS-inducing SELs during planned launches.
Based on modeling of sound propagation in a free field situation, Burgess and Greene (1998) data were used by the Navy to predict that Vandal target launches from SNI could produce a 100-dBA acoustic contour that extends an estimated 4,263 m (13,986 ft) perpendicular to its launch track. In other words, Vandal target launch sounds are predicted to exceed the SEL (100 dBA) disturbance criteria out to a distance of 4,263 m (13,986 ft) from the ALC. Northern elephant seals, harbor seals, and California sea lions haul out in areas within the perimeter of this 100-dBA contour for Vandal launches. For BQM-34 launches from ALC, the Navy assumes that the 100 dBA contour extends an estimated 1,372 m (4,500 ft), perpendicular to its launch track (C. Malme, Engineering and Scientific Services, Hingham, MA, unpublished data). Along the launch track and ahead of the BQM-34, the 100 dBA contour extends a shorter distance (549 m or 1,800 ft). For the smaller BQM-74 and Exocet missiles, the Navy predicts that the 100 dBA contours will be smaller still. The free field modeling scenario used to predict these acoustic contours does not account for transmission losses caused by wind, intervening topography, and variations in launch trajectory or azimuth. Therefore, the predicted 100 dBA contours may be smaller at certain beach locations and for different launch trajectories.
NAWS provisionally estimates that the following numbers of pinnipeds may be subject to Level B harassment annually: 1,403 northern elephant seals, 457 harbor seals, and 1,637 California sea lions. To determine the number of takings by harassment annually, one would need to multiply those numbers by the number of launches conducted annually. The animals affected may be the same animals or may be different animals, depending upon site fidelity of the species. Based on the results of recent monitoring of the haulouts, the estimated number of potential harassment takes would be significantly less than authorized under the two recent IHAs.
In conjunction with a biological contractor, the Navy will continue its land-based monitoring program to assess effects on the three common pinniped species on SNI: northern elephant seals, harbor seals, and California sea lions. This monitoring would occur at three different sites of varying distance from the launch site before, during, and after each launch. The monitoring would be via autonomous video cameras.
During each launch, the Navy would obtain calibrated recordings of the levels and characteristics of the received launch sounds. Acoustic data would be acquired using three Autonomous Terrestrial Acoustic Recorders (ATAR) at three different sites of varying distances from the target's flight path. ATARs can record sounds for extended periods (dependent on sampling rate) without intervention by a technician, giving them the advantage over traditional digital audio tape (DAT) recorders should there be prolonged launch delays of as long as 10 hours. To the extent possible, acoustic recording locations would correspond with the sites where video monitoring is taking place. The collection of acoustic data would provide information on the magnitude, characteristics, and duration of sounds that pinnipeds may be exposed to during a launch. In addition, the acoustic data can be combined with the behavioral data collected via the land-based monitoring program to determine if there is a dose-response relationship between received sound levels and pinniped behavioral reactions. Once collected, sound files will be transferred onto compact discs (CDs) and sent to the acoustical contractor for sound analysis.
The proposed 2003-04 launch monitoring activities will constitute the third year of formal, concurrent pinniped and acoustical monitoring during launches from SNI. Several of the questions about effects of such launch activities on pinnipeds ashore are expected to be answered before the first LOA is issued based on the 2001-2003 monitoring under IHAs. Additional questions will be answered during the first year of monitoring under Start Printed Page 24911an LOA in 2003-2004. Following submission in 2004 of the interim report on the first phase of monitoring under an LOA, NAWS believes that it would be appropriate for the Navy and NMFS to discuss the scope for any additional launch monitoring work on SNI subsequent to the first LOA issued under these regulations. In particular, some biological or acoustic parameters may be documented adequately prior to or during the first LOA (2003-2004), and it may not be necessary to continue all aspects of the monitoring work after the first year.
NMFS prepared an Environmental Assessment (EA) on a similar action in 2001, and made a Finding of No Significant Impact (FONSI). Based on that EA/FONSI, the NAWCWD's March, 2002 Final Environmental Impact Statement to assess the effects of its ongoing and proposed operations in the Sea Range; and NAWS' October 2002 request for the subject proposed regulations, NMFS has preliminarily determined that this action will not have a significant effect on the human environment.
On February 14, 2001, by a unanimous vote, the California Coastal Commission concluded that, with the monitoring and mitigation commitments the Navy has incorporated into their various testing and training activities on the Point Mugu Sea Range, including activities on SNI, and including the commitment to enable continuing Commission staff review of finalized monitoring plans and ongoing monitoring results, the activities are consistent with the marine resources, environmentally sensitive habitat and water quality policies (Sections 30230, 30240, and 30231) of the California Coastal Act.
As this document is being published in conformance with NMFS regulations implementing the small take program (50 CFR 216.105), NMFS requests interested persons to submit comments, information, and suggestions concerning the request and the content of the proposed regulations to authorize the taking. As required by 50 CFR 216.105, NMFS will consider this information in developing proposed regulations to authorize the taking. Prior to submitting comments, NMFS recommends reviewers of this document read the responses to comments made previously (see 66 FR 41843, August 9, 2001; 67 FR 56271, September 3, 2002; 68 FR 11527, March 11, 2003) for this action, as NMFS does not intend to address these issues further without the submission of additional scientific information.
The Chief Counsel for Regulation of the Department of Commerce has certified to the Chief Counsel for Advocacy of the Small Business Administration that this proposed rule, if adopted, would not have a significant economic impact on a substantial number of small entities since it would apply only to the U.S. Navy and would have no effect, directly or indirectly, on small businesses. It may affect a small number of contractors providing services related to reporting the impact of the activity on marine mammals, some of whom may be small businesses, but the number involved would not be substantial. Further, since the monitoring and reporting requirements are what would lead to the need for their services, the economic impact on them would be beneficial. Because of this certification, a regulatory flexibility analysis is not required and none has been prepared.
Renewal of the Letter of Authorization.Start Printed Page 24912
Regulations in this subpart are effective from August 26, 2003, through August 25, 2008.
(a) Under a Letter of Authorization issued pursuant to § 216.106, the U.S. Navy may incidentally, but not intentionally, take marine mammals by harassment, in the course of conducting target missile launch activities within the area described in § 216.151(a) provided all terms, conditions, and requirements of these regulations and such Letter of Authorization are complied with.
(b) The activity identified in paragraph (a) of this section must be conducted in a manner that minimizes, to the greatest extent possible, adverse impacts on marine mammals and their habitat. When conducting these activities, the following mitigation measures must be utilized:
(6) The holder of the Letter of Authorization must limit launch activities during nighttime hours when operationally practicable.
(8) If injurious or lethal take is discovered during monitoring, the holder of the Letter of Authorization must contact the Regional Administrator, Southwest Region, National Marine Fisheries Service, or his/her designee, at (562) 980-4023 within 48 hours and, in cooperation with the National Marine Fisheries Service, launch procedure, mitigation measures, and monitoring methods must be reviewed and appropriate changes made prior to the next launch.
(9) If post-test surveys determine that an injurious or lethal take of a marine mammal has occurred, the test procedure and the monitoring methods must be reviewed and appropriate changes must be made prior to conducting the next detonation.
(ii) Systematic visual observations, by those individuals, described in paragraph (c) of this section, on pinniped presence and activity will be conducted and recorded in a field logbook a minimum of 2 hours prior to the estimated launch time and for no less than 1 hour immediately following the launch of Vandal and similar types of target missiles.
(iii) Systematic visual observations, by those individuals, described in paragraph (c) of this section, on pinniped presence and activity will be conducted and recorded in a field logbook a minimum of 2 hours prior to launch, during launch, and for no less than 1 hour after the launch of the BQM-34, BQM-74, Exocet, Tomahawk, RAM target and similar types of missiles.
(4) A revised final technical report, including all monitoring results during the entire period of the Letter of Authorization will be due 90 days after the end of the period of effectiveness of these regulations.
(f) Activities related to the monitoring described in paragraphs (c) and (d) of this section, or in the Letter of Authorization issued under § 216.106, including the retention of marine mammals, may be conducted without the need for a separate scientific research permit.
(d) Issuance of a Letter of Authorization will be based on a determination that the number of marine mammals taken by the activity will be small, and that the number of marine mammals taken by the activity, specified in § 216.151(b), as a whole, will have no more than a negligible impact on the species or stocks of affected marine mammal(s).
(a) A Letter of Authorization issued under § 216.106 and § 216.156 for the activity identified in § 216.151(a) will be renewed annually upon:
(2) Timely receipt of the monitoring reports required under § 216.155, which have been reviewed by the National Marine Fisheries Service and determined to be acceptable;
(4) Renewal of a Letter of Authorization will be based on a determination that the number of marine mammals taken by the activity continues to be small and that the number of marine mammals taken by the activity, specified in § 216.151(b), will have no more than a negligible impact on the species or stock of affected marine mammal(s).
[FR Doc. 03-11613 Filed 5-8-03; 8:45 am]