[Federal Register Volume 63, Number 209 (Thursday, October 29, 1998)]
[Notices]
[Pages 58012-58014]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-29021]
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DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric Administration
[I.D. 102198A]
Small Takes of Marine Mammals Incidental to Specified Activities
AGENCY: National Marine Fisheries Service (NMFS), National Oceanic and
Atmospheric Administration (NOAA), Commerce.
ACTION: Notice of receipt of application and proposed authorization for
a small take exemption; request for comments.
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SUMMARY: NMFS has received a request from the Washington State
Department of Corrections (WDOC) for authorization to take small
numbers of harbor seals by harassment incidental to the nonexplosive
demolition of the Still Harbor Dock Facility on McNeil Island
[[Page 58013]]
in southern Puget Sound. Under section 101(a)(5)(D) of the Marine
Mammal Protection Act (MMPA), NMFS is requesting comments on its
proposal to authorize the WDOC to incidentally take by harassment a
small number of harbor seals in the vicinity of Gertrude Island for a
period of 1 year, provided certain mitigation measures are incorporated
into the project.
DATES: Comments and information must be received no later than November
30, 1998.
ADDRESSES: Comments on the application should be addressed to Michael
Payne, Chief, Marine Mammal Division, Office of Protected Resources,
NMFS, 1315 East-West Highway, Silver Spring, MD 20910-3225. A copy of
the application, and a 1994 environmental assessment, which includes a
list of references used in this document, may be obtained by writing to
this address or by telephoning one of the contacts listed in FOR
FURTHER INFORMATION CONTACT section.
The Washington State Final Environmental Impact Statement (FEIS)
and other documents are available for review during regular business
hours in the following offices: Office of Protected Resources, NMFS, Rm
13600, 1315 East-West Highway, Silver Spring, MD 20910, and Northwest
Region, NMFS, Bldg 1, 7600 Sand Point Way, Seattle, WA 98115.
FOR FURTHER INFORMATION CONTACT: Kenneth R. Hollingshead, Office of
Protected Resources, NMFS, (301) 713-2055, or Brent Norberg, Northwest
Regional Office, NMFS, (206) 526-6733.
SUPPLEMENTARY INFORMATION:
Background
Section 101(a)(5)(A) and (D) of the MMPA (16 U.S.C. 1361 et seq.)
directs the Secretary of Commerce to allow, upon request, the
incidental, but not intentional, taking of marine mammals by U.S.
citizens who engage in a specified activity (other than commercial
fishing) within a specified geographical region if certain findings are
made and either regulations are issued or, if the taking is limited to
harassment, a notice of a proposed authorization is provided to the
public for review.
Permission may be granted if NMFS finds that the taking will have a
negligible impact on the species or stock(s) or will not have an
unmitigable adverse impact on the availability of the species or
stock(s) for subsistence uses and that the permissible methods of
taking and requirements pertaining to the monitoring and reporting of
such taking are set forth. NMFS has defined ``negligible impact'' in 50
CFR 216.103 as `` ...an impact resulting from the specified activity
that cannot be reasonably expected to, and is not reasonably likely to,
adversely affect the species or stock through effects on annual rates
of recruitment or survival.''
Subsection 101(a)(5)(D) of the Marine Mammal Protection Act
established an expedited process by which citizens of the United States
can apply for an authorization to incidentally take small numbers of
marine mammals by harassment. The MMPA now defines ``harassment'' as:
...any act of pursuit, torment, or annoyance which (a) has the
potential to injure a marine mammal or marine mammal stock in the
wild; or (b) has the potential to disturb a marine mammal or marine
mammal stock in the wild by causing disruption of behavioral
patterns, including, but not limited to, migration, breathing,
nursing, breeding, feeding, or sheltering.
Subsection 101(a)(5)(D) establishes a 45-day time limit for NMFS
review of an application followed by a 30-day public notice and comment
period on any proposed authorizations for the incidental harassment of
small numbers of marine mammals. Within 45 days of the close of the
comment period, NMFS must either issue or deny issuance of the
authorization.
Background of Request
On September 18, 1998, NMFS received an application from the WDOC
requesting an authorization for the possible harassment of small
numbers of harbor seals incidental to work involved in the removal and
replacement of the Still Harbor Dock Facility (Dock Facility), a foul
weather landing facility for the McNeil Island Corrections Center,
McNeil Island, WA. (The Quitclaim Deed, which transferred the property
from Federal to state control, limits the use of the Still Harbor Dock
to emergency situations because of the Gertrude Island harbor seal
population). Significant deterioration of the existing facility,
including the collapse on May 24, 1994, of the steel-pile-supported
concrete center portion of the facility, has resulted in the need for
major renovation in order to maintain a safe, functional facility.
On January 23, 1995, the WDOC was issued an Incidental Harassment
Authorization (IHA) under section 101(a)(5)(D) of the MMPA for this
project (see 60 FR 7046, February 6, 1995). However, removal of the
Dock Facility was not completed; the IHA expired one year after
authorization; and a renewal was not requested since that time.
The renovation will include demolition of the existing facility;
construction of a new pile-supported concrete access trestle
approximately 350 ft (107 m) long by 10 ft (3.0 m) wide, a new 50 ft
(15.2 m) long by 5 ft (1.5 m) wide aluminum gangway, seven new 10 ft
(3.0 m) wide and 50 ft (15.2 m) long and one new 14 ft (4.3 m) wide and
60 ft (18.3 m) long concrete floats; and 60 steel pipe and prestressed
concrete piles. All new structures will be constructed within the
footprint of the existing facility. The new dock will be significantly
smaller than planned in 1994 (8,000 ft2 v. 20,000
ft2). Additional information on the dock facility and the
Corrections Center in general can be obtained by referring to the FEIS
published by the WDOC in 1989 in compliance with the State
Environmental Policy Act of 1971 (Chapter 43.21C, Revised Code of
Washington). This document and the 1998 Addendum are available for
viewing (see ADDRESSES).
In an effort to minimize noise from these activities, no explosives
will be used for demolition. The dock removal and construction
schedules were developed to avoid reproductively sensitive life history
periods of several species of wildlife, including harbor seals. The
demolition and pile-driving activities are anticipated to be completed
in one season's specified work window from December 1998 or January
1999, through March 15, or April 1, 1999. Above-water work is scheduled
to continue through to the end of August 1999.
Alternatives to the Proposed Action
No alternative options for the foul weather dock and moorage have
been identified by the WDOC for McNeil Island. Without the availability
of the foul weather dock, prisoners, visitors, staff and supplies would
be unable to land on the island until the weather cleared. In addition,
management of McNeil Island by the State as a wildlife preserve and
sanctuary prohibits any new road construction for an alternative dock
location under the Wildlife Restriction terms in the Quitclaim Deed of
the property.
Harbor seals
The harbor seal (Phoca vitulina) is the only marine mammal species
anticipated to be taken by the demolition of the Dock Facility
(although a few California sea lions may also be harassed). Gertrude
Island is a low-tide haulout, and rookery used by harbor seals of
various ages. The southern part of the island is located approximately
1,100 ft (305 m) from the
[[Page 58014]]
Dock Facility. The type of taking anticipated will be incidental
harassment caused by the noise of demolition work, pile driving, and
construction. It is anticipated that the seals may be disturbed upon
initiation of activities on a daily basis until they become acclimated
to the activity. The number of seals disturbed will vary with tidal
elevation at the time of initiation of the activity.
Harbor seals are the most abundant pinniped in Washington State.
Since passage of the MMPA in 1972, harbor seal populations in the
inland waters of Washington have increased significantly. From 1983 to
1992, the Washington inland waters stock of harbor seals increased at
an annual rate of 6.1 percent (NMFS, 1994; Huber et al., in prep.).
Boveng (1988) and NMFS (1991) estimated the minimum harbor seal
population for the state's inland waters to be 6,062. More recently,
Barlow et al. (1997) estimate the inland population at 16,253, giving
it a minimum population size estimate of 15,349. South Puget Sound pup
counts are presently increasing at an annual rate of 15.3% from 365
total (25 pups) in 1984 to 706 total (78 pups) in 1992 (NMFS data).
Harbor seals occupy all nearshore areas of Puget Sound, including
McNeil and Gertrude Islands, throughout the year. Based on data from
the Washington Department of Fish and Wildlife (WDFW) and NMFS on
Gertrude Island, total seal counts between 1988 and 1993 indicate the
peak use in September and the lowest use in February. The most current
data on maximum numbers of harbor seals using the Gertrude Island
haulout during the demolition work window vary from 215 to 634,
depending on the month (NMFS data). Seasonal increases at Gertrude
Island have been ascribed to the onset of pupping and molting seasons
and to a movement of seals from other haulout sites as disturbances
increase during the summer (Jones and Stokes, 1989). The pupping season
for the Gertrude Island herd extends from late July to late September,
and the molting season extends from early October to early December
(Newby, 1971; Skidmore and Babson, 1981).
The impact to the harbor seals would be disturbance by noise which
is anticipated to result in a negligible short-term impact to a small
number of harbor seals. When harbor seals are frightened by noise or by
the approach of a boat, plane, human, or other potential predator, the
seals will move rapidly to the relative safety of the water. Depending
upon the severity of the disturbance, seals may return to the original
haulout site immediately, stay in the water for some length of time
before hauling out, or haul out in a different area (Johnson, 1977;
Skidmore and Babson, 1981). These short term disturbances and site
reoccupation were confirmed by observations conducted during the first
phase of the project (WDOC, 1997). Disturbances tend to have a more
serious effect when herds are pupping or nursing, when aggregations are
dense, and during the molting season (Jones and Stokes, 1989).
Short-term impact of the activities is expected to result in a
temporary reduction in utilization of the haulout while work is in
progress or until the seals acclimate to the disturbance. The specific
activities will not result in any reduction in the number of seals, and
they are expected to continue to occupy the same area of Gertrude
Island. The abandonment of Gertrude Island as a harbor seal haulout and
rookery is not anticipated due to the existing level of human activity
on and around the dock for over 50 years (Jones and Stokes, 1989).
Human activity increases annually in the late fall and winter months
when the use of the dock facility serving as a foul weather moorage for
WDOC passenger ferries, barges, tugboats, and patrol boats increases.
In addition, the activities are anticipated to have no long-term
impact on the habitat of harbor seals. No direct physical impact to the
habitat will occur due to the dock reconstruction as all new facilities
will occur within the footprint of the original structure. Mitigation
measures (discussed here) under an MMPA IHA are expected to reduce any
impacts to a negligible level.
Mitigation
Efforts to ensure negligible impact of the dock renovation project
on harbor seals identified by the WDOC and proposed for inclusion in
the IHA include:
1. A December 1-July 15 (or whenever newborn pups are first
observed on Gertrude Island) work schedule for those activities that
are predicted to disturb harbor seals in order to avoid adversely
affecting harbor seals during the pupping and nursing season (July 15
to October 15);
2. A 1,000-ft (305 m) no-entry buffer zone around Gertrude Island
to minimize the impact of vessel traffic on harbor seals during the
project (the buffer zone will be marked by floats);
3. Construction activities and seal behavior will be monitored by
marine biologists to ensure that impacts on seals will be minimal;
4. The demolition will not utilize any explosives;
5. The removal of material and debris will be in the largest sizes
possible, and the removed materials will be transported off site for
disposal; and
6. To mitigate noise levels and, thereby, impacts to harbor seals,
all construction equipment should comply as much as possible with
applicable equipment noise standards of the U.S. Environmental
Protection Agency (EPA, 1974), and all construction equipment should
have noise control devices (e.g., mufflers) no less effective than
those provided on the original equipment.
Monitoring
The Gertrude Island haulout has been the site of several research
projects for a number of years. Current research efforts by NMFS and
WDFW include a radio tag study to learn about feeding behavior of the
seals. A cooperative monitoring program by NMFS and WDFW is under
discussion; alternatively, WDOC may contract with a private contractor
to monitor activities. In addition, NMFS proposes to require WDOC to
notify NMFS and the WDFW prior to work in order to coordinate the
monitoring of potential disturbances to seals.
Proposed Authorization
NMFS proposes to issue an incidental harassment authorization for 1
year for the demolition of the collapsed portion of the Dock Facility
located on McNeil Island in the State of Washington, provided the above
mentioned mitigation measures and reporting requirements are
incorporated. NMFS has preliminarily determined that the demolition of
the Dock Facility would result in the harassment taking of only a small
number of harbor seals and possibly California sea lions, would have a
negligible impact on the harbor seal and California sea lion stocks and
would not have an adverse impact on the availability of these stocks
for subsistence uses.
Information Solicited
NMFS requests interested persons to submit comments, information,
and suggestions concerning this request.
Dated: October 23, 1998.
Hilda Diaz-Soltero,
Director, Office of Protected Resources, National Marine Fisheries
Service.
[FR Doc. 98-29021 Filed 10-28-98; 8:45 am]
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