[Federal Register Volume 60, Number 81 (Thursday, April 27, 1995)]
[Unknown Section]
[Pages 20739-20749]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-10277]
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DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
Notice of Availability, Final Apex Houston Oil Spill Restoration
Plan
AGENCY: Fish and Wildlife Service, Department of the Interior.
ACTION: Notice of Availability.
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SUMMARY: The U.S. Fish and Wildlife Service (Service) herein releases
the final Apex Houston Oil Spill Restoration Plan (Final Plan). The
Final Plan describes the techniques, schedule, and budget for a project
to restore natural resources injured as a result of an oil spill that
killed approximately 9,000 seabirds along the coast of central
California in 1986. The Final Plan also includes responses to comments
about the Draft Plan (Federal Register/Vol. 59/No. 213/55282) that were
received during a 45-day public comment period that ended on December
19, 1994. Money to carry out this project was obtained via a Consent
Decree that ended litigation on the case in August 1994. The Service
will begin implementation of the Final Plan in 1995 and will conclude
the project in approximately 2004. A Natural Resources Trustee Council
containing representatives of the Service, the National Oceanic and
Atmospheric Administration, and the California Department of Fish and
Game will oversee the project.
DATES: Written comments on the Final Plan must be submitted on or
before June 26, 1995.
ADDRESSES: Written comments or materials regarding the Final Plan
should be sent to the following address. Comments or requests for
copies of the Final Plan can also be sent via FAX to (916) 979-2128.
Daniel Welsh, Chief, Branch of Natural Resource Damage Assessment, U.S.
Fish and Wildlife Service, 2800 Cottage Way, Room E-1803, Sacramento,
CA 95825, (916) 979-2110.
FOR FURTHER INFORMATION CONTACT: Requests for further information or
additional copies of the Final Plan may be made to: Daniel Welsh,
Chief, Branch of Natural Resource Damage Assessment, U.S. Fish and
Wildlife Service, 2800 Cottage Way, Room E-1803, Sacramento, CA 95825,
(916) 979-2110.
Restoration of Nearshore Breeding Seabird Colonies on the Central
California Coast: Final Plan
I. Executive Summary
Between January 28 and February 4, 1986, the transportation barge
APEX HOUSTON discharged an undetermined amount of San Joaquin Valley
crude oil while in transit from San Francisco Bay to the Long Beach
Harbor. The oil spill caused damage to State of California and Federal
resources from San Francisco to the Big Sur coast. Approximately 9,000
seabirds were killed, including 6,000 common murres (Uria aalge), in
addition to other aquatic life in and around the coastal waters of
central California. Both the State and Federal governments responded to
the spill and began assessing damages as a result of the spill.
The State and Federal natural resource trustees commenced
litigation in this matter against potentially
[[Page 20740]] responsible parties in January 1989. The complaints
alleged claims for natural resource damages, costs, and penalties
pursuant to the Clean Water Act, 33 U.S.C. 1251 et seq., Title III of
the National Marine Sanctuaries Act, 16 U.S.C. 1431 et seq. (formerly
the National Marine Protection, Research and Sanctuaries Act,
``MPRSA''), the California Harbors & Navigation Code 293 and 294, and
other State Law.
In August 1994 the parties settled this matter in a Consent Decree
entered by the Federal District Court for the Northern District of
California for a total of $6,400,000. As part of the natural resources
damage settlement, $4,916,430 has been allocated for the restoration of
common murres in central California. The common murre restoration
project is the subject of this Final Plan. An additional $500,000 has
been allocated for the acquisition of habitat for the marbled murrelet
(Brachyramphus marmoratus), a species that is listed under the Federal
and State Endangered Species Acts and was impacted by the spill. The
murrelet project is being carried out under State lead and is included,
but not described in detail, in this Final Plan. The remainder of the
$6,400,000 collected in the settlement was for penalties and costs
incurred as a result of the spill.
A Trustee Council, comprised of representatives of each Trustee
(California Department of Fish and Game, National Oceanic and
Atmospheric Administration, and U.S. Fish and Wildlife Service) was
established to review and select restoration actions for natural
resources injured by the spill. This Council will meet regularly during
the duration of the project to review progress and make necessary
changes. The Trustee Council has approved this Final Plan for
restoration of common murres.
The goal of the common murre restoration project is to recolonize
common murres at historic breeding colonies in the areas where colonies
were extirpated or severely depleted by the APEX HOUSTON oil spill.
Social attractants (decoys and recorded vocalizations of common murres)
will be used to attract common murres to nest at historic nearshore
colonies in the vicinity of San Francisco and Monterey. Common murres
will be monitored at these sites and at reference sites in the vicinity
of Point Reyes and the Farallon Islands in order to evaluate and refine
the recolonization project. Parameters to be monitored include colony
size, reproductive success, behavior, and phenology of common murres.
In addition, anthropogenic factors (e.g., boat disturbance, aircraft
overflights, oiling) and natural factors (e.g., predation, diet) that
may affect the success of recolonization efforts will be monitored.
This project may take a minimum of 10 years to achieve success because
common murres have inherently low reproductive rates and do not breed
until they are several years old.
II. Introduction
Nearshore breeding colonies of common murres (Uria aalge)
throughout central coastal California (Point Arena to Big Sur)
decreased by 60.1 percent between 1980 and 1986 (Takekawa et al. 1990).
This population decline was attributed to high mortality from gill-net
fishing, oil spills (including the Apex Houston spill), and a severe El
Nino-Southern Oscillation event in 1982-1983 (Takekawa et al. 1990,
Swartzman and Carter 1991, Carter et al. 1992). The APEX HOUSTON oil
spill, which occurred principally between San Francisco and the
Monterey Peninsula, killed nearly 9,000 seabirds in February 1986
(Siskin et al. 1993). This mortality included approximately 1,293
rhinoceros auklets (Cerorhinca monocerata), 180 small alcids, 12
marbled murrelets (Brachyramphus marmoratus), and 1,206 other birds
(including loons, grebes, scoters, cormorants, shorebirds, and gulls)
(Siskin et al. 1993). In addition, approximately 6,000 common murres
were killed (Siskin et al. 1993). The common murre colony at Devil's
Slide Rock was found to be abandoned, subcolonies at Castle Rocks
disappeared, and other central coastal breeding sites (e.g., Hurricane
Point Rocks, Point Reyes) were greatly reduced after the spill
(Takekawa et al. 1990, Swartzman and Carter 1991, Carter et al. 1992)
(Figure 1).
In the early 1900's, common murres bred at Prince Island in
southern California (Carter et al. 1992). However, the central
California population currently represents the southernmost range for
breeding common murres in the Pacific. Future oil spills and other
catastrophic events (e.g., disease, predation, climate change) could
result in the extirpation of this population as well as a reduction in
the species' geographic range. The restoration of former common murre
colonies would aid in securing the central coastal California common
murre population and would spread the risk of future disasters among
colony sites over a wider range of the California coast.
The goal of this project is to restore common murres at historic
breeding colonies in areas where colonies were extirpated or severely
depleted by the APEX HOUSTON oil spill. The project will be conducted
over approximately 10 years. A total of $4,916,430 was obtained for
this project via the court settlement.
III. Purpose
The restoration funds were recovered under the Federal Clean Water
Act and National Marine Sanctuaries Act, the California Harbors and
Navigation Code Secs. 293 and 294, and other State Law. A Trustee
Council, comprised of representatives of each Trustee, was established
to review and select restoration actions. As part of the settlement in
the APEX HOUSTON litigation, $4,916,430 has been allocated for the
restoration of common murre colonies that suffered damage from the APEX
HOUSTON oil spill. This project should aid in restoring the central
California common murre population at historic breeding colonies in
areas where colonies were extirpated or severely depleted by the APEX
HOUSTON oil spill. Restoring this population to a larger part of its
historic range will aid in spreading the risk of future catastrophic
events (e.g. oil spills, disease, storms) between more colony sites and
over a broader section of the California coast.
IV. Restoration Alternatives Considered and Selected
(A) Alternatives Considered
The Federal Clean Water Act and other Federal law states that
natural resources damages ``shall be used to restore, rehabilitate, or
acquire the equivalent of'' natural resources damaged or destroyed as a
result of a discharge of oil (Clean Water Act Sec. 311(f)(5), 33 U.S.C.
Sec. 1321(f)(5)). In addition, the Service's Natural Resource Damage
Assessment program in Region 1 has found the following criteria helpful
in setting priorities when evaluating options for restoration of
natural resources damaged due to releases of oil or hazardous
substances (Wickham et al. 1993):
(1) On-site and in-kind, in which restored resources occur at the
injured site and are physically and biologically the same as those
lost;
(2) Off-site and in-kind, in which restored resources occur at a
site other than that injured, but similar physical and biological
resources are restored;
(3) On-site and out-of-kind, in which restored resources at the
impact site are physically and biologically different from those lost;
(4) Off-site and out-of-kind, in which restored resources are at a
site other than the impact site and are physically [[Page 20741]] and
biologically different from those lost; and,
(5) In special cases, acquisition of equivalent existing resources/
services under private ownership, which does not replace lost
resources, but reduces potential future loss by placing acquired
resources under public management and protection (e.g., the marbled
murrelet habitat acquisition project).
Therefore, the Trustees concentrated their damage assessment and
restoration efforts on the recovery of central California seabird
populations, especially alcids, since these birds incurred the greatest
losses due to the APEX HOUSTON oil spill (Siskin et al. 1993).
Alternatives considered for seabird restoration included active
recolonization/restoration projects and habitat acquisition projects.
Alternatives were compared based on the criteria described above, as
well as the technical feasibility of the project, importance to the
public interest, and monetary costs. Two projects have been selected
for immediate implementation. These are the acquisition of marbled
murrelet breeding habitat and the recolonization of common murres using
social attraction techniques. The Trustee Council will reevaluate these
two projects and consider additional restoration projects and/or
supplemental methodology at least annually. The Trustee Council will
reappropriate and reauthorize funds as needed.
Recolonization/restoration efforts were considered for common
murres and rhinoceros auklets, two seabird species that suffered high
mortality as a result of the spill. The rhinoceros auklet project
involved use of artificial nest sites to enhance breeding populations
along the central California coast. This project was not chosen for
immediate implementation for several reasons. A large increase in the
California rhinoceros auklet population occurs during the winter months
and far exceeds the summer estimated breeding population (Briggs et al.
1987). It is believed that this large increase is due to migrants
moving into the area from more northern colonies (Briggs et al. 1987).
In addition, the rhinoceros auklet population within the area of the
spill (i.e. the local population) had been increasing since the early
1980's and continued to increase after the APEX HOUSTON spill (Ainley
and Boekelheide 1990, Carter et al. 1992). This suggests that many of
the 1,293 rhinoceros auklets estimated to have been killed by the APEX
HOUSTON spill (Siskin et al. 1993) were probably wintering birds from
outside the local breeding population. As a result, restoration of
rhinoceros auklets received a lower priority.
The common murre recolonization project (describe herein) was given
higher priority than rhinoceros auklet restoration because its
potential benefits were linked more closely to the injuries caused by
the spill. The extirpation of the Devil's Slide Rock colony and a
severe reduction at the Castle and Hurricane rocks colonies were
attributed to the common murre mortalities that resulted from the APEX
HOUSTON oil spill (Swartzman and Carter 1991). As a result, damage to
the local breeding population was demonstrated (Swartzman and Carter
1991).
An additional site (Bodega Rock in Sonoma County) for common murre
recolonization was suggested during the public comment period. Bodega
Rock is an active seabird colony and in 1989 it contained 558 Brandt's
cormorant (Phalacrocorax penicillatus) nests and 12 western gull (Larus
occidentalis) nests (Carter et al. 1992). This location was not
selected for implementation of murre recolonization techniques because
there are no known records of common murres breeding on this rock.
A third restoration project involving construction of a seabird
breeding and rehabilitation facility was rejected because its cost was
prohibitive relative to funds available, and because the California
Department of Fish and Game's Office of Oil Spill Prevention and
Response is already implementing a statewide oiled wildlife care
network.
Four habitat acquisition projects were considered: purchase of Cape
Vizcaino in northern Mendocino County to protect nesting seabirds,
purchase of coastal land near Castle Rock to protect a mainland colony
of common murres, purchase of lands within San Francisco Bay, and
purchase of marbled murrelet nesting habitat along the central
California coast. The first three projects were given lower priorities
because they were outside of the area impacted by the spill (Cape
Vizcaino), were too costly (mainland site near Castle Rock), or were
beneficial primarily to species that were not affected by the spill
(sites in San Francisco Bay). The purchase of marbled murrelet nesting
habitat along the central California coast was selected for immediate
implementation with settlement funds allocated specifically for that
project.
(B) Alternatives Selected
1. Acquisition of Marbled Murrelet Nesting Habitat. The acquisition
of marbled murrelet nesting habitat along the central California coast
was selected because acquisition would occur within the area impacted
by the spill and damage to the local population could be demonstrated.
In addition, this project has great importance to the public because it
will provide long-term protection of a species listed under the Federal
and State Endangered Species Acts. The Trustee Council believes that
the $500,000 allocated to this project will be sufficient to obtain
suitable habitat to compensate for the murrelets injured in the spill,
provided that it is leveraged with other resources. The Trustees regard
augmentation of the budget for the marbled murrelet project as the
highest priority for any funds that may become available from the murre
recolonization project.
2. Recolonization of Impacted Common Murre Colonies. The second
project the Trustees have selected for immediate implementation is the
recolonization of common murre colonies at Devil's Slide and San Pedro
rocks in San Mateo County and Castle and Hurricane Point rocks in
Monterey County.
a. Devil's Slide and San Pedro Rocks Common Murre Recolonization:
Recolonize common murres at Devil's Slide and San Pedro rocks (San
Mateo County, California) using social attraction methods (decoys and
recorded vocalizations) and develop reference information needed to
evaluate and refine restoration efforts.
Location(s): Devil's Slide and San Pedro rocks, San Mateo County,
California; Point Reyes area (Point Reyes, Point Resistance, Double
Point, and Miller Point rocks), Marin County, California; Farallon
Islands, San Francisco County, California.
Justification: Common murres are an extremely important and visible
part of the California seabird community (Carter et al. 1992). Common
murres are the most abundant nesting species and have the greatest
biomass of all breeding seabirds in the state (Sowls et al. 1980,
Ainley and Boekelheide 1990). In addition, common murres comprise 40
percent of the breeding seabirds found in central California (Carter et
al. 1992). This population sustained severe losses from commercial and
subsistence egging in the 1800's and early 1900's, from chronic oil
pollution and spills in the early to mid 1900's, and from chronic oil
pollution and gillnetting in the 1980's and 1990's (Ainley and Lewis
1974, Takekawa et al. 1990, Carter et al. 1992).
Common murres were last recorded breeding at San Pedro Rock in
1908, when the colony was in the process of being extirpated by egg
collectors (Ray 1909). During the 1980's common [[Page 20742]] murres
in central California declined dramatically due to mortality from gill
nets, oil spills (including the 1984 PUERTO RICAN and 1986 APEX
HOUSTON), as well as the severe 1982-83 El Nino event (Ainley and
Boekelheide 1990, Takekawa et al. 1990, Carter et al. 1992). The APEX
HOUSTON spill in 1986 contributed significantly to the loss of the
Devil's Slide Rock colony near San Francisco (Swartzman and Carter
1991). The San Pedro and Devil's Slide rocks colonies are in close
proximity and constitute the only common murre colonies between San
Francisco and Monterey. This is a large portion of the range of the
central California common murre population. The recolonization of
abandoned common murre colonies in central California will contribute
to the restoration of this seabirds' historic geographic range.
Given the current depleted condition of the central California
common murre population (Ainley and Boekelheide 1990, Takekawa et al.
1990, Swartzman and Carter 1991, Carter et al. 1992, Ainley et al.
1994), extirpated colonies are not likely to be reestablished in the
foreseeable future without human assistance. The San Pedro Rock colony
has not recolonized over the past 85 years and the Devil's Slide Rock
colony has not been recolonized in the 8 years following the APEX
HOUSTON spill (Carter et al. 1992, Carter and Takekawa, unpubl. data).
Similarly, the Prince Island colony in southern California has not been
recolonized since extirpation in the early 1900's (Carter et al. 1992).
Furthermore, all six nearshore colonies in central California have
remained severely depleted since the mid-1980's (Carter et al. 1992).
The reductions of the geographic range and small numbers of breeding
common murres along the central California coastline increase the risk
that future catastrophic events will result in extinction of the
central California population.
Studies of seabird colony formation in Maine demonstrated that
recolonization can be achieved using social attractants (Kress 1978,
Kress and Nettleship 1988, Kress et al. 1992). The use of decoys and
tape recordings has attracted prospecting seabirds, which have then
bred, once a threshold group size has been reached. These techniques
have assisted in the recolonization of several colonial nesting seabird
species (Podolsky 1985; Podolsky and Kress 1989, 1992). These
techniques have been utilized in an effort to recolonize common murres
in Maine. The common murre recolonization project began when 15 life-
size common murre decoys were deployed on Matinicus Rock in summer 1992
(National Audubon Society, unpubl. data). The closest common murre
nesting colony to Matinicus Rock is located approximately 75 miles east
on Murre Ledge, a small Canadian island. Common murres began landing
among the decoys within 2 days of starting the vocalization tapes
(National Audubon Society, unpubl. data). As many as four common murres
were sighted at one time among the decoys and at least two birds were
present throughout May and June 1992 courting and copulating among the
decoys (National Audubon Society unpubl. data). This effort has
included the use of various combinations of social attractant
techniques to determine the most effective combination, e.g., decoys
with and without sound, sound only, decoys with sound and with and
without egg decoys, and sound variations (Schubel 1993). Results
indicate that a combination of visual and sound stimuli are essential
to attract common murres. The highest common murre numbers and activity
were observed where egg and murre decoys were accompanied by sound, and
decoys were most densely arranged. The recolonization project has
continued during 1993 and 1994 with promising results. Common murres
continue to exhibit pre-breeding behavior (such as courtship displays,
copulation, and passing of fish between potential mates), and the
number of common murres attracted to the decoys has increased to
approximately 25 birds (National Audubon Society, unpubl. data).
However, social attraction techniques must be applied for many years
before breeding begins and a self-sustaining breeding colony can be
attained (Kress and Carter 1991).
In order to refine recolonization methods and evaluate their
success, reference information will be needed on the reproductive
biology, behavior, and phenology of common murres at an unmanipulated
nearshore site in the local area. However, little information is
available from nearshore colonies in central California. Monitoring
attendance patterns, arrival dates, reproductive success, and behavior
of breeding and nonbreeding common murres at accessible colonies in the
Point Reyes area will provide a comparison to evaluate recolonization
of Devil's Slide and San Pedro rocks. The Point Reyes colonies (i.e.,
Point Reyes, Point Resistance, Double Point, and Miller Point rocks)
are the closest to the recolonization sites and should provide a
reference for what would normally be expected in a nearshore common
murre colony as well as a good comparison with the recolonization site.
The monitoring conducted at these unmanipulated colonies will be used
to assess recolonization responses and common murre activity patterns
at recolonization sites, as well as aid in supporting refinement of
recolonization methods.
In addition, unique information will be needed from the common
murre colony at the South Farallon Islands at Farallon National
Wildlife Refuge in order to evaluate recolonization responses and
refine techniques. Common murre reproductive success, diet, and
breeding biology have been studied for over 20 years at the South
Farallon Islands as part of long-term monitoring of seabird populations
required for the Farallon National Wildlife Refuge and other research
conducted by the Point Reyes Bird Observatory (Ainley and Boekelheide
1990, Ainley et al. 1994). As a result of these studies, a small number
of individually marked birds of known age and sex exist at the Farallon
Islands. Limited information is available concerning the attendance of
breeding and nonbreeding common murres at breeding sites, especially
during winter. Information obtained on individually-marked birds, where
age and sex are known, would give a better understanding of expected
time-in-attendance and behavior at breeding sites for adult and
subadult common murres during the breeding and nonbreeding seasons.
Detailed information on common murre attendance and prospecting in the
winter will make it possible to evaluate the significance of winter
attendance at the recolonization sites. If winter attendance is crucial
to successful breeding, social attraction methods may have to be
deployed for a longer period. In addition, all accessible subcolonies
of common murres at the South Farallon Islands would be examined for
more general attendance patterns throughout the year.
Attendance, breeding biology, and behavior will be monitored during
the breeding season in marked and unmarked birds in plots at the South
Farallon Islands so that recolonization responses at recolonization
sites can be more effectively evaluated. Certain colonies with
potential for future intensive monitoring efforts may be examined in
greater detail, including reproductive success. This information will
be important in evaluating and modifying the social attraction methods
used at the restoration sites. Information that is only available at
this larger, more accessible, and closely monitored common murre
colony, including [[Page 20743]] information on known-aged common
murres, will be used to refine and assess recolonization efforts. All
research conducted on the Farallon National Wildlife Refuge must be
approved by the U.S. Fish and Wildlife Service, San Francisco Bay
National Wildlife Refuge Complex. All research conducted is evaluated
by Refuge staff to ensure that the activities associated with the
research are compatible with the purposes for which the refuge was
established.
Proposed Actions: Social attraction techniques will be used to
recolonize common murres at Devil's Slide and San Pedro rocks. The use
of social attraction techniques, similar to those used elsewhere to
encourage recolonization by several seabird species, will be employed
(Kress 1983, Podolsky 1985, Podolsky and Kress 1989). It is possible
that small numbers of common murres are still alive that originally
bred at Devil's Slide Rock. Therefore, it is important to begin the
recolonization project as soon as possible in order to attract any
remaining common murres that have a history of attachment to this
colony. Preliminary work will consist of selecting observation points
to view recolonization sites, constructing and installing observation
blinds, obtaining access permits, and purchasing needed equipment.
Aerial surveys of central California breeding seabird colonies and
periodic observations of breeding colonies from mainland vantage points
will be conducted in spring and summer 1995. Additional aerial
reconnaissance of Devil's Slide and San Pedro rocks will be conducted
to obtain photographs for mapping the restoration sites. Reconnaissance
trips to Devil's Slide and San Pedro rocks will take place to determine
equipment and procedures needed to deploy social attraction equipment.
Ladders may be installed to allow safe access onto the colonies for
project personnel.
Decoys and audio equipment will be placed on the rocks in fall 1995
before common murres begin to frequent nesting islands. Recordings of
common murre breeding vocalizations will be made at the Farallon NWR.
Between 100 and 200 life-size common murre decoys will be positioned on
suitable nesting habitat on Devil's Slide and San Pedro rocks. The
decoys will be secured to the rock in a fashion that simulates occupied
common murre colonies. Densities and locations of decoys will be based
on past aerial photos of the active Devil's Slide Rock colony (taken in
1982) and observations of common murres at existing reference sites
from mainland vantage points and aerial photos. Several omnidirectional
weather resistant loudspeakers will be positioned at the recolonization
sites. Compact disks of California common murre vocalizations will be
played prior to and throughout the breeding season from December to
August. Daily observations of the recolonization sites will begin once
decoys have been deployed and will continue through July. Devil's Slide
Rock will be observed from the mainland using a portable blind and
telescope. San Pedro Rock observations will occur from a blind located
on the rock, from a boat, and/or from the mainland.
Data collected will include common murre arrival date, number of
common murres present, behavior of common murres, interaction with
other species (e.g., Brandt's Cormorants), location on rock, attendance
patterns, diet or feeding behavior, and presence of predators.
Prospecting common murres will be plotted by location on maps of the
recolonization site. One or more aerial photographic censuses of the
central California common murre colonies will be conducted annually
between May and June. The censuses will be used to calculate annual
breeding population sizes at the recolonization sites and nearby
reference colonies in central California, compare trends between years,
and assist in determining numbers of common murres not visible from the
mainland or boats. Social attractants will be displayed through the
breeding season until after common murres normally leave the breeding
sites, usually in July. The decoys and audio equipment will be
collected after all bird breeding on the rock has been completed.
Equipment will be checked, cleaned, and replaced as necessary. The
equipment will be redeployed during the following fall before common
murres begin to frequent nesting islands. Monitoring of recolonization
sites will continue annually after the first social attractants are
deployed. The Trustee Council will reevaluate the recolonization
efforts annually and revise as necessary. In addition, the use of
techniques such as time-lapse photography and radiotelemetry to assist
in monitoring birds will be investigated and used if technically and
economically feasible. However, the placement and retrieval of such
equipment in a way that does not cause undue disturbance to common
murres or other seabirds and is secure from human vandalism or theft
may be a problem.
The breeding behavior and colony attendance of common murres will
be monitored at four nearby colonies in the Point Reyes National
Seashore and/or the Gulf of the Farallones National Marine Sanctuary:
Point Reyes, Point Resistance, Double Point Rocks, and Miller Point
Rocks. These sites will serve as reference sites for the recolonization
sites. Several variables will be monitored to allow comparison to
recolonization sites, including population size and status, attendance
patterns, timing, breeding phenology and success, behavior, interaction
with other species, diet or feeding behavior, impacts of predators,
human perturbations, and other disturbances. The population size and
status would be determined using methods similar to those employed by
Birkhead and Nettleship (1980), Gaston et al. (1983), Mudge (1988), and
Hatch and Hatch (1989). Only subcolonies that can be viewed from a safe
location will be selected. Reconnaissance work and preliminary
observations and logistics would begin in spring/summer 1995. This work
would consist of obtaining access permits to conduct work, selecting
subcolonies to be studied, selecting plots within subcolonies, and
conducting aerial surveys of the colonies. The monitoring period would
parallel that followed at Devil's Slide and San Pedro rocks.
Winter and summer attendance, selected aspects of breeding biology
of banded and unbanded common murres, and many of the same parameters
measured at recolonization and nearshore reference sites will also be
monitored at breeding sites at the South Farallon Islands. Established
and new study plots, individually-banded birds, blinds, and other
facilities will allow for the study of summer and winter attendance in
more detail than at nearshore locations. Monitoring would include
determining arrival dates, winter attendance patterns (breeding versus
nonbreeding common murres), winter behavior of nonbreeding and breeding
common murres, site fidelity of breeding common murres, reproductive
success, population size, and impacts of predation. Monitoring at the
South Farallon Islands will continue for 2 years and may be continued
if needed to support refinement of recolonization methods or to
facilitate interpretation of data at other colonies.
This restoration project will provide unique opportunities to
enhance public knowledge concerning seabirds, seabird conservation, and
the marine environment. Every attempt will be made to educate the
public through presentations, news coverage, and other appropriate
venues. Emphasis will be placed on greater awareness of seabird
resources in the area, the problems [[Page 20744]] caused by oil
pollution and oil spills, gill nets, and other anthropogenic factors as
well as the restoration efforts conducted by the cooperating agencies,
environmental organizations, and biologists. In addition, the location
of the recolonization sites near San Francisco along scenic Highway 1
provides excellent viewing opportunities for the public and attracts
large numbers of visitors each year. Therefore, opportunities for
public outreach will be explored at this site.
Schedule
Spring-summer 1995: Begin preliminary work, including contracting,
planning, logistics, and permits. Conduct aerial surveys of seabird
colonies in central California in May or June to obtain baseline data,
conduct aerial flights of Devil's Slide and San Pedro rocks to obtain
aerial photos for mapping purpose, and record breeding common murre
vocalizations at the Farallon NWR for use in the recolonization
project. Select colonies and study plots to be monitored in the Point
Reyes area. Conduct safety training for personnel as required.
Fall and winter 1995-1996: In fall 1995, conduct reconnaissance
trips to recolonization sites in preparation for deployment of social
attractants. Before December 1995, deploy social attractants and
initiate daily observations of recolonization sites. Initiate daily
observations of study plots in December 1995. Complete field season in
August when common murres generally leave breeding colonies.
Observations of study plots will continue from December through August
for a minimum of 5 years to 10 years in order to provide necessary
information to adequately evaluate the recolonization project. Work at
the South Farallon Islands will begin the winter of 1995-1996 and will
continue for a minimum of 2 years. Regular progress reports and an
annual report will be submitted to the Trustee Council by the persons
conducting work with funding from the APEX HOUSTON Trustee Council.
Spring 1996-winter 2004: Continue recolonization and monitoring
efforts as necessary to accomplish project goals.
b. Castle and Hurricane Point Rocks Restoration: Restore common
murres at Castle and Hurricane Point rocks using social attraction
methods (decoys and recorded vocalizations).
Location: Castle and Hurricane Point rocks, Monterey County,
California.
Justification: As described above, the recolonization of historic
common murre colonies in central California will contribute to the
reversal of the dramatic reduction of this seabird's historic
geographic range. The 1986 APEX HOUSTON spill negatively impacted the
breeding colonies that make up the southern half of the central
California breeding range (Swartzman and Carter 1991). The Castle and
Hurricane Point rocks colonies were severely impacted by the APEX
HOUSTON spill based on locations of APEX HOUSTON oil slicks, depleted
size of the Monterey colonies and subcolonies after the spill, and
locations of recovery of oiled common murres during the spill
(Swartzman and Carter 1991, Siskin et. al 1993). Adult common murres
are known to attend breeding colonies during winter months at the
Southeast Farallon Island in central California (Ainley and Boekelheide
1990, Sydeman 1993). Also, common murres have been observed attending
the Castle and Hurricane Point rocks colonies during the winter
(Carter, unpubl. data). Castle and Hurricane Point rocks were in the
direct path of oil slicks occurring from the APEX HOUSTON spill
(Swartzman and Carter 1991). In addition, approximately 1,600 common
murres were recovered in Monterey Bay near these 2 colonies. As a
result, the APEX HOUSTON spill was responsible for a severe reduction
in numbers observed at these two colonies following the spill.
Currently, common murres occur on five rocks and the mainland at
Castle Rocks and two rocks at Hurricane Point Rocks. Aerial surveys
conducted during the 1994 breeding season indicate that common murre
numbers at subcolonies have remained low since the APEX HOUSTON oil
spill (Carter and Takekawa, unpubl. data). Each subcolony is comprised
of less than a hundred to several hundred common murres, and the
breeding status of these subcolonies is unknown (Carter and Takekawa,
unpubl. data). Given the low numbers of common murres that occur at
these subcolonies, it is possible that breeding success is limited. Due
to the small size of the subcolonies and other factors (e.g., gill net
fishing in Monterey Bay, El Nino events, future oil spills, and other
human disturbances) the colonies at Castle and Hurricane Point rocks
continue to be in danger of extirpation. These colonies are
particularly important because they are at the current southern end of
the range of the central California population as well as the southern
extreme of the species' range in the Pacific Ocean. These colonies are
in close proximity to each other and constitute the only active common
murre colonies south of San Francisco, representing a large portion of
the range of the central California common murre population. Given the
current fragile condition of the overall central California common
murre population and the lack of recovery over time (Ainley and
Boekelheide 1990, Takekawa et. al. 1990, Swartzman and Carter 1991,
Carter et. al. 1992, Ainley et. al. 1994), colonies once lost are not
likely to be reestablished in the foreseeable future without human
assistance. Based on established principles of conservation biology, if
the colonies at Castle and Hurricane Point rocks are lost, the
resulting reductions in the geographical range, numbers, breeding
locations, and productivity of common murres further increase the risk
of extinction of the entire central California population.
Proposed Action: The common murre colonies at the Castle and
Hurricane Point rock complexes will be evaluated to determine the best
means of employing social attractants at these locations. A minimum of
2 years would be required to determine appropriate methods. Both of
these colonies are composed of several subcolonies on different rocks.
Subcolonies will be examined to obtain a comprehensive understanding of
colony dynamics in a severely depleted condition. Breeding population
levels, reproductive success, attendance patterns, behavioral
observations, and nesting locations will be determined at as many
subcolonies as possible. Particular attention will be paid to
prospecting birds within established subcolonies and at unoccupied
rocks. In addition, all unoccupied rocks and potential mainland
breeding habitats will be assessed for the use of social attractants to
encourage common murre breeding. Habitat will be assessed for
suitability to support a common murre subcolony, including such factors
as slope, size, protection from human and other disturbance, surf
conditions, and predation threats. The unoccupied rocks will be
regularly monitored to detect prospecting common murres.
A phased approach to employing social attractants will be used to
refine the use of social attractants on the colony. Criteria to be used
to determine the use of social attractants include: loss of subcolonies
or colonies, below normal reproductive success, lack of colony growth,
limited availability of breeding sites in existing subcolonies, high
numbers of prospecting common murres in existing subcolonies, presence
of prospecting common murres in areas with no breeding, and population
status at each colony. The use of social attractants would be employed
at sites where it was deemed necessary to [[Page 20745]] encourage
common murres to recolonize lost subcolonies or prospect and nest on
unoccupied rocks. The goal would be to prevent colony loss without
negatively impacting existing subcolonies. If, for any reason, social
attractants are not deemed advisable after 2 years, the colonies at
these sites will be evaluated for 3 more years. This monitoring will
occur to ensure adequate reproductive success, colony survival, and
recovery and, if necessary, to develop alternative restoration
techniques.
This restoration project will provide unique opportunities to
enhance public knowledge concerning seabirds, seabird conservation, and
the marine environment. Every attempt will be made to educate the
public through presentations, news coverage, and other appropriate
venues. Emphasis will be placed on greater awareness of seabird
resources in the area, the problems caused by oil pollution and oil
spills, gill nets, and other anthropogenic factors as well as the
restoration efforts conducted by the cooperating agencies,
environmental organizations, and biologists. In addition, the location
of the recolonization sites near Monterey along scenic Highway 1
provides excellent viewing opportunities for the public and attracts
large numbers of visitors each year. As a result, informal public
outreach will be conducted at the recolonization sites.
Schedule
Spring and Summer 1995: Preliminary work will begin, including
selection of observation points, obtaining access permits, planning,
and purchasing. Aerial surveys of breeding common murre colonies will
be conducted in May or June to obtain baseline data. These surveys will
be conducted in conjunction with aerial common murre surveys for
central California. Observations of breeding colonies will continue
each year from December 1995 until August 1997, at a minimum. In August
1997, the use of social attractants will be assessed to restore these
common murre colonies. In fall 1997, social attractants will be
deployed where suitable. These efforts will continue until at least
2004, unless success is achieved, or failure declared, prior to that
date.
V. Common Murre Project Goals
The APEX HOUSTON oil spill killed an estimated 6,000 common murres,
was a major factor in the eradication of the Devil's Slide Rock colony,
and damaged colonies at Castle and Hurricane Point rocks. If the latter
2 colonies are lost, over 75 percent of the recent range of the central
California common murre population will have been lost. The Trustees
have selected restoration alternatives designed to restore common
murres to colonies in the areas most severely affected by the spill.
Both short-term and long-term goals have been established for this
restoration project.
The short-term goal of this project is to restore common murres at
historic breeding colonies in areas where colonies were extirpated or
severely depleted by the APEX HOUSTON oil spill. The timeframe needed
for common murres to become established at extirpated colonies is
unknown but is suspected to be several years. Therefore, the Trustees
will consider the short-term goal achieved if significant progress is
made toward the establishment of 100 breeding pairs of common murres at
the Devil's Slide Rock and San Pedro Rock colonies. The Trustees
believe this goal can be achieved within 10 years if oceanic conditions
are favorable for murre breeding during most of the years of the
project.
The long-term goal is to restore the colonies to pre-spill
population levels. Ultimately, this restoration project should aid in
restoring the portion of the central California common murre population
most affected by the APEX HOUSTON spill to its historic range, colony
sizes, and reproductive potential. However, the timeframe needed for
common murres to reach pre-spill population levels is unknown and is
suspected to take several generations (i.e., more than 10 years). Thus,
the accomplishment of the long-term goal of restoring the central
California common murre population to its historic range and colony
sizes is likely to occur only after the conclusion of the
recolonization project. The Trustees believe that this is appropriate
because the social facilitation that results from the presence and
activity of the birds that were attracted to breed at the
recolonization sites will take the place of the artificial stimuli
provided by the decoys and recorded vocalizations, enabling long-term
goals to be achieved without continued human intervention.
The Trustees plan to review the common murre restoration project at
least annually at which time the effectiveness of the project and
possible improvements will be considered. In addition, public comments
will be taken and considered by the Trustee Council throughout the
project. The annual review process may result in revisions to the plan.
VI. Common Murre Project Implementation
The U.S. Fish and Wildlife Service (Service) has been designated as
Lead Trustee for the common murre recolonization project and will
utilize staff and facilities of the San Francisco Bay National Wildlife
Refuge Complex and the Sacramento Ecological Services Field Office to
implement the project. The National Biological Service's Dixon Field
Office will be asked to provide the Service with technical expertise
and field support to assist in the implementation of this project
through an inter-agency agreement. The Service will obtain additional
assistance from one or more experts in seabird recolonization/
restoration via contracts or cooperative agreements. Reference site
work conducted at the South Farallon Islands may be accomplished
through an existing cooperative agreement between the San Francisco Bay
NWR Complex and the Point Reyes Bird Observatory. Other contracts or
agreements may be developed as necessary to achieve project goals over
the anticipated 10-year duration of this project.
VII. Environmental Compliance
The Service has determined that the project is categorically
excluded from the National Environmental Policy Act (NEPA), 42 U.S.C.
4321 et seq, according to the Department of Interior's Departmental
Manual, 516 DM 6, Appendix I, 516 DM 2, Appendix I. Resource management
activities such as the type described for this project, which include
research, reintroduction of established species into their historic
range, and small structures or improvements, are categorically excluded
from NEPA. The U.S. Fish and Wildlife Service has prepared an
Environmental Action Memorandum setting forth the basis for the
categorical exclusion of this project.
The California Department of Fish and Game has also determined that
the project is categorically exempt from the California Environmental
Quality Act (CEQA), Cal. Pub. Resources Code 21000 et seq., and has
filed a Notice of Exemption with the State Clearinghouse.
The California Coastal Commission staff has concurred with the
Trustees negative determination made pursuant to 15 CFR 930.35(d) of
the National Oceanic and Atmospheric Administration implementing
regulations relative to the Coastal Zone Management Act.
[[Page 20746]]
VIII. Common Murre Restoration Project Budget
As part of the settlement, $4,916,430 has been allocated for common
murre restoration. This amount, plus any interest earned, is available
to fund the recolonization project for 10 years. A budget has been
developed that lists the range of annual and cumulative costs
anticipated for each major budgetary category (Table 1). Availability
of sufficient money to fund the project through years 9 and 10 may
depend on interest earnings, because the upper end of the range of
anticipated project costs exceeds the amount of the settlement. A more
detailed budget will be available following the completion of
contracting procedures.
Major budget categories include equipment (boats, motors, decoys,
photo and audio equipment, decoys, vehicles, etc.); operating costs
(gas, aerial survey flights, travel, administrative support, etc.);
salaries (salaries for agency personnel conducting recolonization
project); contracts/agreements (seabird recolonization consultant,
cooperative agreement for Farallon Islands work); public education/
outreach (public meetings, press releases, press conferences,
presentations, publications in popular and technical literature, etc.).
Table 1.--Estimated Murre Project Budget
--------------------------------------------------------------------------------------------------------------------------------------------------------
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6 Year 7 Year 8 Year 9 Year 10
--------------------------------------------------------------------------------------------------------------------------------------------------------
Equipment............... 155,000
210,000 50,000-
70,000 75,000-
105,000 50,000-
70,000 55,000-
75,000 50,000-
70,000 50,000-
70,000 55,000-
70,000 50,000-
70,000 50,000-
70,000
Operating Costs......... 130,000
175,000 125,000-
170,000 120,000-
160,000 120,000-
160,000 120,000-
160,000 120,000-
160,000 120,000-
160,000 120,000-
160,000 120,000-
160,000 120,000-
160,000
Salaries................ 70,000
95,000 195,000-
260,000 205,000-
275,000 215,000-
290,000 225,000-
305,000 225,000-
305,000 235,000-
320,000 250,000-
335,000 260,000-
350,000 275,000-
370,000
Contracts/Agreements.... 20,000
25,000 80,000-110
,000 80,000-
110,000 30,000-
45,000 35,000-
45,000 25,000-
30,000 25,000-
35,000 25,000-
35,000 30,000-
35,000 30,000-
40,000
Public Education/
Outreach............... 5,000-
10,000 5,000-
10,000 5,000-
10,000 5,000-
10,000 5,000-
10,000 5,000-
10,000 5,000-
10,000 5,000-
10,000 5,000-
10,000 5,000-
10,000
Annual Total............ 380,000
515,000 455,000-
620,000 485,000-
660,000 420,000-
575,000 440,000-
595,000 425,000-
575,000 435,000-
595,000 455,000-
610,000 465,000-
625,000 480,000-
650,000
Cumulative Project Total 380,000
515,000 835,000-
1,135,000 1,320,000
1,795,000 1,740,000
2,370,000 2,180,000
2,965,000 2,605,000
3,540,000 3,040,000
4,135,000 3,495,000
4,745,000 3,960,000
5,370,000 4,440,000
6,020,000
--------------------------------------------------------------------------------------------------------------------------------------------------------
IX. Responses to Comments
The Service received numerous oral and written comments at a public
meeting held on November 17, 1994, in Sausalito, California, and during
the public comment period that began with the November 4, 1994, Federal
Register notice (Federal Register/Vol. 59, No. 213/55282). The Service
appreciates the time and effort expended by the respondents.
A. General Comments Concerning This Plan
1. Length of the Public Comment Period. Comment: Several
respondents stated that the initial 30-day public comment period was
not sufficient to allow detailed review of the draft Plan.
Response: The Service extended the public comment period to 45
days.
2. Value of the Project. Comment: Many respondents expressed their
belief that this project was an appropriate use of the settlement money
and would help restore the bird species that was most impacted by the
spill.
Response: The Service appreciates the support the public has shown
for this project.
Comment: Several respondents said that the project was a waste of
money and should not be implemented.
Response: In their legal complaints against the parties allegedly
responsible for this oil spill, the State and Federal plaintiffs sought
recovery for injuries to the natural resources under the trusteeship of
the United States and the State of California. During the pendency of
this action, the United States and the State, through their designated
Natural Resource Trustees, proposed certain projects to restore natural
resources injured as a direct result of the spill. These projects
included the common murre recolonization project that is the subject of
this Final Plan, as well as the marbled murrelet habitat acquisition
project. The plaintiffs and defendants agreed, and the court by
entering a Consent Decree found, that the proposed projects were
reasonable and appropriate measures to restore the affected natural
resources.
The Consent Decree states that the Trustees may make other use of
the proceeds of the settlement if they ``determine that either of the
proposed restoration projects are not feasible, practicable, or in the
public interest.'' However, the Trustees have not obtained any
convincing information through the public comment process, or through
their own continued review of the project, to indicate that either of
the proposed projects is not feasible, not practicable, or not in the
public interest. On the contrary, nearly all of the public comments
supported the project in concept and focused on technical details that
could be improved or clarified. Therefore, the Trustee Council has
authorized the Service to proceed with this project as described in
this Final Plan.
3. Compliance With Environmental Regulations. Comment: Several
respondents asked for clarification on how the Service will comply with
the National Environmental Policy Act (NEPA) and other legislation
designed to prevent adverse impacts of Federal projects on the
environment.
Response: Preparation of an Environmental Impact Report or
Environmental Assessment under NEPA is not required for this project
because the restoration of species to their native range is an activity
that is categorically exempt from NEPA and from its State equivalent,
the California Environmental Quality Act. The Service has prepared and
filed appropriate documentation of these exemptions. In addition, the
Service has asked for and received a negative consistency determination
from the California Coastal Commission, as required by the Coastal Zone
Management Act.
The installation of decoys, tape recorders, cameras, and ladders at
breeding colonies will take place during the non-breeding season to
avoid disturbance of murres, cormorants, gulls, and other species
protected by the Migratory Bird Treaty Act. Control of gulls and other
predators is not currently a component of this project. The Service
will obtain all necessary Federal, State, and local permits, and
[[Page 20747]] access permission from private landowners, before
initiating field work.
B. Comments Regarding Alternative Projects
Comment: Several respondents suggested that the murre
recolonization project should be implemented as a pilot study at a
reduced level of funding, and that the savings should be used to fund
other projects, including: Rhinoceros auklet restoration, additional
habitat acquisition for marbled murrelets, acquisition of property
containing a common murre colony at Cape Vizcaino in Mendocino County,
a fisheries task force to reduce mortality of seabirds in gill nets of
the central California fishing industry, efforts to reduce impacts of
chronic oil pollution on seabirds, gull control and other projects on
the Farallon Islands, and genetic studies of Pacific coast murres.
Response: The draft Plan was revised and more detail has been
provided in the Restoration Alternatives Considered and Selected
section of the Final plan. The Service intends to approach this project
in phases. The initial phase focuses on direct restoration activities
at Devil's Slide and San Pedro rocks, and monitoring at other sites.
The project will be scaled up to include implementation of
recolonization techniques at Hurricane Rock and Castle Rock after
several years of monitoring, if appropriate. This phased approach was
implicit in the Draft Plan and has been further clarified in the Final
Plan. A reduced level of effort will not provide sufficient information
to evaluate whether the project is working, and diversion of money to
other projects may not allow implementation of the project over the
entire ten year period that may be necessary to achieve the project's
goals. Consequently, the Service does not feel it would be acting in
the public interest to shift large sums of money from the murre
recolonization project to other projects at this time.
This decision does not mean that the Service or the Trustees reject
the argument that some of the alternative projects that were suggested
would be beneficial to natural resources injured by the Apex Houston
Oil Spill. On the contrary, many of these projects, including
rhinoceros auklet restoration and acquisition of the murre colony at
Cape Vizcaino, were considered during settlement negotiations. Other
suggested projects, including projects to reduce seabird mortality from
gill nets and chronic oiling, are already underway with funding from
other sources within the Trustee agencies. The murre recolonization
project and the murrelet habitat acquisition project were given
priority because the Trustees feel that these two projects best address
restoration needs of local populations of the species that were most
seriously impacted by the spill. The Alternatives Considered section of
the Final Plan has been expanded to better address these concerns.
The Service intends to carefully manage project expenditures to
stay within the proposed budget, and will attempt to realize savings
wherever possible. In addition, the settlement money will be invested
in an interest-bearing account within the Department of the Interior's
Natural Resource Damage Assessment and Restoration fund. In general,
the priority for use of any savings realized through this strategy will
be continuation of murre restoration efforts beyond 10 years and
acquisition of marbled murrelet nesting habitat, as per the Consent
Decree. Other alternatives that are cost effective and have clear
benefits to injured resources will receive future consideration from
the Trustee Council on a case-by-case basis if their implementation
will not compromise the objectives of the two main projects.
C. Comments Regarding Details of the Plan
1. Project Duration and Goals. Comment: Several respondents
expressed concern that 10 years may not be long enough to achieve the
goals of this project because murres have inherently low reproductive
rates, usually do not breed until they are several years old, and may
not breed in years when oceanic conditions are not favorable.
Response: The Service agrees that 10 years may be the minimum
amount of time necessary to achieve the goal of recolonizing common
murres at sites from which they have been extirpated. The long-term
goal of restoring these colonies and the central California population
to pre-spill numbers will almost certainly require more than 10 years.
The Goals section was revised in the Final Plan to clarify the
Service's short and long-term goals. The Service believes that the
goals of the project can best be achieved through immediate
implementation of recolonization efforts, and through continued efforts
via other State and Federal programs to protect central California
murres from human disturbance, chronic oiling, and entanglement in gill
nets while the recolonization efforts are underway.
2. Disturbance of Murres and Other Nesting Seabirds. Comment:
Several respondents cautioned the Service to either forego or proceed
carefully with implementation of restoration efforts at Hurricane Rock
and Castle Rock to avoid disturbing the remaining murres nesting at
these sites.
Response: The Service agrees that unnecessary disturbance of the
remaining murres nesting at these sites should be avoided. This concern
was expressed in the Draft Plan and has been clarified in the Final
Plan. Efforts at these sites will be limited to monitoring of behavior
and reproductive success for the first 2 years of the project. After 2
years, the Service may deploy social attractants at these sites, but
only where it is deemed necessary to encourage murres to recolonize
lost subcolonies or suitable, unoccupied rocks.
Comment: Several respondents cautioned the Service to minimize
disturbance of Brandt's cormorants and western gulls that nest at
Devil's Slide Rock and other sites where recolonization is proposed.
Response: The Service agrees that disturbance of other nesting
seabirds should be minimized during this project. Human disturbance
will be minimized by deploying social attractants during the non-
breeding season, conducting aerial surveys at appropriate heights to be
determined in consultation with the Gulf of the Farallones National
Marine Sanctuary and other agencies, and by making behavioral
observations through telescopes located in blinds, on boats, or on the
mainland, rather than in the middle of colonies.
In the few instances where formation of new murre colonies has been
observed in central California, these new colonies were established
within existing Brandt's cormorant colonies, possibly because these
locations provided greater protection from gull predation (Ainley and
Boekelheide 1990). Common murres and Brandt's cormorants also nest
together at several colonies along the coasts of California and Oregon
(Carter et al. 1992, Carter and Takekawa unpubl. data, R. Lowe pers.
comm.). Because common murres can sometimes supplant cormorants and
gulls from nesting areas, the potential exists for cormorant
reproductive success to be reduced at recolonization sites (Ainley and
Boekelheide 1990). However, the Service believes this problem can be
minimized by deploying social attractants in such a way that murres
obtain the benefits of proximity to nesting cormorants without usurping
cormorant nest sites. Behavior and reproductive success of cormorants
and gulls nesting on recolonization sites will be monitored to help
determine the effect of murre recolonization on local seabird
communities.
[[Page 20748]]
3. Farallon Islands Component of the Project. Comment: Several
respondents asked for expansion or clarification of the scope of the
Farallon Islands component of the project and pointed out that an
understanding of the status and phenology of the large colony at
Southeast Farallon Island is critical to restoration efforts at the
smaller, nearshore colonies. Also, some respondents suggested that
experiments with decoys be conducted at the Farallon Islands in order
to refine and validate social attraction methodologies and protocols.
Response: The Service agrees that Farallon Islands are an important
component to the conservation and understanding of the central
California common murre population. Monitoring of common murres at the
Farallon Islands, especially individually banded murres, will be
important for evaluating the success of the recolonization efforts at
the nearshore colonies and has been included in the Final Plan. The
Service believes that the efforts described in the Final Plan are
appropriate for the Farallon Islands, given National Wildlife Refuge
management objectives and protocols. The Service does not believe that
the colonies on the Farallon Islands merit greater emphasis in
restoration than the nearshore colonies. The murre colonies on the
Farallon Islands were impacted by the spill, but may still contain
sufficient birds to accomplish any necessary social facilitation of
breeding without human intervention.
Research on decoy placement and on effectiveness of combinations of
auditory and visual attractants has been underway in Maine for several
years (Schubel 1993). This research provides empirical data on numbers
and densities of decoys sufficient to attract murres when combined with
auditory stimuli. The Service believes that the information from Maine
is sufficient to guide initiation of the Final Plan. Therefore, the
Service believes it is not essential, at this time, to conduct methods-
oriented research and experimental validation of common murre
recolonization techniques at the Farallon Islands for the
recolonization project to be successful. However, the Trustees will
reevaluate the restoration projects and consider additional projects at
least annually.
4. Additional Sites for Murre Recolonization. Comment: One
respondent suggested that the Service could do more to expand the range
of common murres in central California by using social attraction
techniques to start a new colony at Bodega Rock in Sonoma County.
Response: The Service did not consider this site for murre
recolonization because, as far as the Service is aware, it has no prior
history of use for nesting by murres. Lack of prior use suggests that
this may not be a suitable location for a murre colony.
5. Prey Resources for Common Murres. Comment: Some respondents
questioned whether ecological resources, such as prey, might be
insufficient to support growing murre populations and thereby could
limit the success of the project.
Response: The Service is aware of this theory and would welcome any
additional information for consideration on this subject at any time.
Currently, the Service believes that insufficient information exists to
conclude that prey resource limitations would preclude the success of
this project. In addition, Pacific Sardines (Sardinops sagax) are
beginning to recover in central California (Wolf 1992). Sardines had
disappeared north of Point Conception by 1951, probably due to a
combination of overfishing and an extended period of cold water
(described in Ainley and Lewis 1974). Their recovery may strengthen
food resources in the vicinity of the recolonization sites; for
example, the once abundant sardines were believed to be an important
food to larger seabirds, including cormorants and puffins (Ainley and
Lewis 1974). In addition, more detail was added to the plan to clarify
that common murre diet and feeding information would be collected at
recolonization and reference sites where feasible, in order to gain
more information on prey resources.
6. Public Outreach and Education. Comment: Several respondents
emphasized the importance of making public outreach and education an
integral part of the project.
Response: The Service agrees that public outreach and education
should be an integral part of this project, and has allocated up to
$10,000 annually for this purpose. Relevant public outreach and
education opportunities will be sought throughout the project, and will
be funded to the extent possible without compromising project goals.
7. Budget. Comment: Several respondents requested a more detailed
budget.
Response: A more detailed budget has been included in the Final
Plan. This budget contains anticipated ranges of annual costs for major
budgetary categories for the duration of the project. Actual costs for
cooperators and contractors will be known when negotiations are
completed, and/or when contracts have been advertised and bids
received.
8. Coordination With Other Trustee Councils. Comment: One
respondent recommended that the Apex Houston Trustee Council coordinate
its activities with the Trustee Councils that are guiding restoration
projects for seabirds injured in other oil spills along the Pacific
Coast.
Response: The Apex Houston Trustee Council will coordinate and
communicate with other Trustee Councils.
Literature Cited
Ainley, and T.J. Lewis. 1974. The history of Farallon Island marine
bird populations, 1854-1972. Condor 76:432-446.
Ainley, D.G. and R.J. Boekelheide, editors. 1990. Seabirds of the
Farallon Islands: Ecology, dynamics, and structure of an upwelling-
system community. Stanford University Press, Stanford, California.
450 pages.
Ainley, D.G., W.J. Sydeman, S.A. Hatch, and U.W. Wilson. 1994.
Seabird population trends along the west coast of North America:
causes and extent of regional concordance. Studies in Avian Biology
No. 15:119-133.
Birkhead, T.R. and D.N. Nettleship. 1980. Census methods for murres,
Uria species: a unified approach. Canadian Wildlife Service
Occasional Papers. Paper Number 43. 25pp.
Briggs, K.T., W.B. Tyler, D.B. Lewis, and D.R. Carlson. 1987. Bird
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Dated: April 19, 1995.
Thomas Dwyer,
Acting Regional Director, Region 1, Fish and Wildlife Service.
[FR Doc. 95-10277 Filed 4-26-95; 8:45 am]
BILLING CODE 4310-55-P