[Federal Register Volume 79, Number 181 (Thursday, September 18, 2014)]
[Notices]
[Pages 56065-56070]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2014-22269]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

RIN 0648-XD174


Takes of Marine Mammals Incidental to Specified Activities; 
Seabird Monitoring and Research in Glacier Bay National Park, Alaska, 
2014

AGENCY: National Marine Fisheries Service (NMFS), National Oceanic and 
Atmospheric Administration (NOAA), Commerce.

ACTION: Notice; issuance of an incidental harassment authorization.

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SUMMARY: In accordance with the Marine Mammal Protection Act (MMPA) 
regulations, we, NMFS, hereby give notification that the National 
Marine Fisheries Service has issued an Incidental Harassment 
Authorization (IHA) to Glacier Bay National Park (Glacier Bay NP), to 
take marine mammals, by Level B harassment, incidental to conducting 
seabird monitoring and research activities in Alaska, September 2014.

DATES: Effective September 1 through September 30, 2014.

ADDRESSES: The public may obtain an electronic copy of Glacier Bay NP's 
application, supporting documentation, the authorization, and a list of 
the references cited in this document by visiting: http://www.nmfs.noaa.gov/pr/permits/incidental.htm#applications. In the case 
of problems accessing these documents, please call the contact listed 
here (see FOR FURTHER INFORMATION CONTACT).
    The Environmental Assessment and associated Finding of No 
Significant Impact, prepared pursuant to the National Environmental 
Policy Act of 1969, are also available at the same site.

FOR FURTHER INFORMATION CONTACT: Jeannine Cody, NMFS, Office of 
Protected Resources, NMFS (301) 427-8401.

SUPPLEMENTARY INFORMATION:

Background

    Section 101(a)(5)(D) of the Marine Mammal Protection Act of 1972, 
as amended (MMPA; 16 U.S.C. 1361 et seq.) directs the Secretary of 
Commerce to allow, upon request, the incidental, but not intentional, 
taking of small numbers of marine mammals of a species or population 
stock, by U.S. citizens who engage in a specified activity (other than 
commercial fishing) within a specified geographical region if, after 
NMFS provides a notice of a proposed authorization to the public for 
review and comment: (1) NMFS makes certain findings; and (2) the taking 
is limited to harassment.
    An Authorization shall be granted for the incidental taking of 
small numbers of marine mammals if NMFS finds that the taking will have 
a negligible impact on the species or stock(s), and will not have an 
unmitigable adverse impact on the availability of the species or 
stock(s) for subsistence uses (where relevant). The Authorization must 
also set forth the permissible methods of taking; other means of 
effecting the least practicable adverse impact on the species or stock 
and its habitat; and requirements pertaining to the mitigation, 
monitoring and reporting of such taking. 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.''
    Except with respect to certain activities not pertinent here, the 
MMPA defines ``harassment'' as: any act of pursuit, torment, or 
annoyance which (i) has the potential to injure a marine mammal or 
marine mammal stock in the wild [Level A harassment]; or (ii) 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 [Level B harassment].

Summary of Request

    On April 7, 2014, NMFS received an application from Glacier Bay NP 
requesting that we issue an Authorization for the take of marine 
mammals, incidental to conducting monitoring and research studies on 
glaucus-winged gulls (Larus glaucescens) within Glacier Bay National 
Park and Preserve in Alaska. NMFS determined the application complete 
and adequate on May 1, 2014.
    Glacier Bay NP proposes to conduct ground-based and vessel-based 
surveys to collect data on the number and distribution of nesting gulls 
within five study sites in Glacier Bay, AK during September, 2014.
    The proposed activities are within the vicinity of pinniped haulout 
sites and the following aspects of the proposed activities are likely 
to result in the take of marine mammals: noise generated by motorboat 
approaches and departures; noise generated by researchers while 
conducting ground surveys; and human presence during the monitoring and 
research activities. There are two species with confirmed occurrence in

[[Page 56066]]

the action area: harbor seals (Phoca vitulina) and Steller sea lions 
(Eumetopia jubatus). Of the two species, only harbor seals would most 
likely be harassed incidental to conducting the seabird monitoring and 
research activities due to the researchers avoiding any site with 
Steller sea lions present. Thus, by incorporation of this mitigation 
measure for Steller sea lions, we anticipate that take, by Level B 
harassment only, of individuals of harbor seals could result from the 
specified activity.

Description of the Specified Activity

Overview

    Glacier Bay NP proposes to identify the onset of gull nesting; 
conduct mid-season surveys of adult gulls, and locate and document gull 
nest sites within the following study areas: Boulder, Lone, and 
Flapjack Islands, and Geikie Rock. Each of these study sites contains 
harbor seal haulout sites and Glacier Bay NP proposes to visit each 
site up to five times during the research season.
    Glacier Bay NP must conduct the gull monitoring studies to meet the 
requirements of a 2010 Record of Decision for a Legislative 
Environmental Impact Statement (NPS 2010) which states that Glacier Bay 
NP must initiate a monitoring program for the gulls to inform future 
native egg harvests by the Hoonah Tlingit in Glacier Bay, AK. Glacier 
Bay NP actively monitors harbor seals at breeding and molting sites to 
assess population trends over time (e.g., Mathews & Pendleton, 2006; 
Womble et al., 2010). Glacier Bay NP also coordinates pinniped 
monitoring programs with National Marine Mammal Laboratory and the 
Alaska Department of Fish & Game and plans to continue these 
collaborations and sharing of monitoring data and observations in the 
future.

Dates and Duration

    The Authorization would be effective from September 1, 2014 through 
September 30, 2014. Following is a brief summary of the activities.
    Glacier Bay NP proposes to conduct a maximum of three ground-based 
surveys per each study site and a maximum of two vessel-based surveys 
per each study site.

Specified Geographic Region

    The proposed study sites would occur in the vicinity of the 
following locations: Boulder (58[deg]33'18.08'' N; 136[deg]1'13.36'' 
W), Lone (58[deg]43'17.67'' N; 136[deg]17'41.32'' W), and Flapjack 
(58[deg]35'10.19'' N; 135[deg]58'50.78'' W) Islands, and Geikie Rock 
(58[deg]41'39.75'' N; 136[deg]18'39.06'' W) in Glacier Bay, Alaska. 
Glacier Bay NP will also conduct studies at Tlingit Point Islet located 
at 58[deg]45'16.86'' N; 136[deg]10'41.74'' W; however, there are no 
reported pinniped haulout sites at that location.

Detailed Description of Activities

    Glacier Bay NP proposes to conduct: (1) Ground-based surveys at a 
maximum frequency of three visits per site; and (2) vessel-based 
surveys at a maximum frequency of two visits per site.
    Ground-Based Surveys: These surveys involve two trained observers 
visiting the largest gull colony on each island to: (1) Obtain 
information on the numbers of nests, their location, and contents 
(i.e., eggs or chicks); (2) determine the onset of laying, 
distribution, abundance, and predation of gull nests and eggs; and (3) 
record the proximity of other species relative to colony locations.
    The observers would access each island using a kayak, a 32.8 to 
39.4-foot (ft) (10 to 12 meter (m)) motorboat, or a 12 ft (4 m) 
inflatable rowing dinghy. The landing craft's transit speed would not 
exceed 4 knots (4.6 miles per hour (mph). Ground surveys generally last 
from 30 minutes to up to two hours depending on the size of the island 
and the number of nesting gulls. Glacier Bay NP will discontinue ground 
surveys after they detect the first hatchling to minimize disturbance 
to the gull colonies.
    Vessel-Based Surveys: These surveys involve two trained observers 
observing and counting the number of adult and fledgling gulls from the 
deck of a motorized vessel which would transit around each island at a 
distance of approximately 328 ft (100 m) to avoid flushing the birds 
from the colonies. Vessel-based surveys generally last from 30 minutes 
to up to two hours depending on the size of the island and the number 
of nesting gulls.

Comments and Responses

    We published a notice of receipt of Glacier Bay NP's application 
and proposed Authorization in the Federal Register on June 4, 2014 (79 
FR 32226). During the 30-day comment period, we received one comment 
from the Marine Mammal Commission (Commission) which recommended that 
we issue the requested Authorization, provided that Glacier Bay NP 
carries out the required monitoring and mitigation measures as 
described in the notice of the proposed authorization (79 FR 32226, 
June 4, 2014) and the application. We have included all measures 
proposed in the notice of the proposed authorization (79 FR 32226, June 
4, 2014) in the final Authorization.
    We also received comments from one private citizen who opposed the 
authorization on the basis that NMFS should not allow any 
Authorizations for harassment. We considered the commenter's general 
opposition to Glacier Bay NP's activities and to our issuance of an 
Authorization. The Authorization, described in detail in the Federal 
Register notice of the proposed Authorization (79 FR 32226, June 4, 
2014) includes mitigation and monitoring measures to effect the least 
practicable impact to marine mammals and their habitat. It is our 
responsibility to determine whether the activities will have a 
negligible impact on the affected species or stocks; will have an 
unmitigable adverse impact on the availability of the species or 
stock(s) for subsistence uses, where relevant; and to prescribe the 
means of effecting the least practicable adverse impact on the affected 
species or stocks and their habitat, as well as monitoring and 
reporting requirements.
    Regarding the commenter's opposition to authorizing harassment, the 
MMPA allows U.S. citizens (which includes Glacier Bay NP) to request 
take of marine mammals incidental to specified activities, and requires 
us to authorize such taking if we can make the necessary findings 
required by law and if we set forth the appropriate prescriptions. As 
explained throughout the Federal Register notice (79 FR 32226, June 4, 
2014), we made the necessary preliminary findings under 16 U.S.C. 
1371(a)(5)(D) to support issuance of Authorization.

Description of Marine Mammals in the Area of the Specified Activity

    The marine mammals most likely to be harassed incidental to 
conducting seabird monitoring and research are Pacific harbor seals. We 
do not anticipate harassment of Steller sea lions due to the 
researchers avoiding any site with Steller sea lions present.
    We refer the reader to Allen and Angliss (2013) for general 
information on these species which we presented in the notice of 
proposed authorization (79 FR 32226, June 4, 2014). The 2013 NMFS 
Marine Mammal Stock Assessment Report is available at: http://www.nmfs.noaa.gov/pr/sars/pdf/ak2013_final.pdf.

Other Marine Mammals in the Proposed Action Area

    Northern sea otters (Enhydra lutris kenyoni) and polar bears (Ursis 
maritimus) listed as threatened under the Endangered Species Act could 
occur in the proposed area. The U.S. Fish and Wildlife Service manages 
these species

[[Page 56067]]

and we do not consider them further in this notice of issuance of an 
Authorization.

Potential Effects of the Specified Activities on Marine Mammals

    Acoustic and visual stimuli generated by: (1) Noise generated by 
kayak, motorboat, or dinghy approaches and departures; (2) human 
presence during seabird monitoring and research activities, have the 
potential to cause Pacific harbor seals hauled out on Boulder, Lone, 
and Flapjack Islands, and Geikie Rock to flush into the surrounding 
water or to cause a short-term behavioral disturbance for marine 
mammals.
    We expect that acoustic and visual stimuli resulting from the 
proposed activities has the potential to harass marine mammals. We also 
expect that these disturbances would be temporary and result, at worst, 
in a temporary modification in behavior and/or low-level physiological 
effects (Level B harassment) of harbor seals.
    We included a summary and discussion of the ways that the types of 
stressors associated with Glacier Bay NP's specified activities (i.e., 
visual and acoustic disturbance) have the potential to impact marine 
mammals in the notice of proposed authorization (79 FR 32226, June 4, 
2014).
    Vessel Strike: The potential for striking marine mammals is a 
concern with vessel traffic. However, it is highly unlikely that the 
use of small, slow-moving kayaks or boats to access the research areas 
would result in injury, serious injury, or mortality to any marine 
mammal. Typically, the reasons for vessel strikes are fast transit 
speeds, lack of maneuverability, or not seeing the animal because the 
boat is so large. Glacier Bay NP's researchers will access areas at 
slow transit speeds in easily maneuverable kayaks or small boats 
negating any chance of an accidental strike.
    Rookeries: No monitoring or research activities would occur on 
pinniped rookeries and breeding animals are concentrated in areas where 
researchers would not visit. Therefore, we do not expect mother and pup 
separation or crushing of pups during flushing.

Anticipated Effects on Marine Mammal Habitat

    We considered these impacts in detail in the notice for the 
proposed authorization (79 FR 32226, June 4, 2014). Briefly, we do not 
anticipate that the proposed research activities would result in any 
significant or long-term effects on the habitats used by the marine 
mammals in the proposed area, including the food sources they use 
(i.e., fish and invertebrates). While we anticipate that the specified 
activity could potentially result in marine mammals avoiding certain 
areas due to temporary ensonification and human presence, this impact 
to habitat is temporary and reversible. We do not consider behavioral 
modification to cause significant or long-term consequences for 
individual marine mammals or their populations.

Mitigation

    In order to issue an incidental take authorization under section 
101(a)(5)(D) of the MMPA, NMFS must set forth the permissible methods 
of taking pursuant to such activity, and other means of effecting the 
least practicable adverse impact on such species or stock and its 
habitat, paying particular attention to rookeries, mating grounds, and 
areas of similar significance, and on the availability of such species 
or stock for taking for certain subsistence uses (where relevant).
    The Glacier Bay NP has reviewed the following source documents and 
has incorporated a suite of proposed mitigation measures into their 
project description.
    (1) Recommended best practices in Womble et al. (2013); Richardson 
et al. (1995); Pierson et al. (1998); and Weir and Dolman, (2007).
    To reduce the potential for disturbance from acoustic and visual 
stimuli associated with the activities Glacier Bay NP and/or its 
designees has proposed to implement the following mitigation measures 
for marine mammals:
     Perform pre-survey monitoring before deciding to access a 
study site;
     Avoid accessing a site based on a pre-determined threshold 
of animals present; sites used by pinnipeds for pupping; or sites used 
by Steller sea lions;
     Perform controlled and slow ingress to the study site to 
prevent a stampede and select a pathway of approach to minimize the 
number of marine mammals harassed;
     Monitor for offshore predators. Avoid approaching the 
study site if killer whales (Orcinas orca) are present. If Glacier Bay 
and/or its designees see predators in the area, they must not disturb 
the animals until the area is free of predators.
     Maintain a quiet research atmosphere in the visual 
presence of pinnipeds.
    Pre-Survey Monitoring: Prior to deciding to land onshore to conduct 
the study, the researchers would use high-powered image stabilizing 
binoculars from the watercraft to document the number, species, and 
location of hauled out marine mammals at each island. The vessels would 
maintain a distance of 328 to 1,640 ft (100 to 500 m) from the 
shoreline to allow the researchers to conduct pre-survey monitoring.
    Site Avoidance: Researchers would decide whether or not to approach 
the island based on the species present, number of individuals, and the 
presence of pups. If there are high numbers (greater than 25) of hauled 
out harbor seals and/or young pups or there are any Steller sea lions 
present, the researchers will not approach the island and will not 
conduct gull monitoring research.
    Controlled Landings: The researchers would determine whether to 
approach the island based on the number and type of animals present. If 
the island has fewer than 25 individuals without pups, he/she would 
approach the island by motorboat at a speed of approximately 2 to 3 
knots (2.3 to 3.4 mph). This would provide enough time for any marine 
mammals present to slowly enter the water without panic or stampede. 
The researchers would also select a pathway of approach farthest from 
the hauled out harbor seals to minimize disturbance.
    Minimize Predator Interactions: If marine predators (i.e. killer 
whales) are present in the vicinity of hauled out marine mammals, the 
researchers would not approach the study site.
    Noise Reduction Protocols: While onshore at study sites, the 
researchers would remain vigilant for hauled out marine mammals. If 
marine mammals are present, the researchers would move slowly and use 
quiet voices to minimize disturbance to the animals present.

Mitigation Conclusions

    NMFS has carefully evaluated Glacier Bay NP's proposed mitigation 
measures in the context of ensuring that we prescribe the means of 
effecting the least practicable impact on the affected marine mammal 
species and stocks and their habitat. Our evaluation of potential 
measures included consideration of the following factors in relation to 
one another:
     The manner in which, and the degree to which, the 
successful implementation of the measure is expected to minimize 
adverse impacts to marine mammals;
     The proven or likely efficacy of the specific measure to 
minimize adverse impacts as planned; and
     The practicability of the measure for applicant 
implementation.
    Any mitigation measure(s) prescribed by NMFS should be able to 
accomplish, have a reasonable likelihood of

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accomplishing (based on current science), or contribute to the 
accomplishment of one or more of the general goals listed here:
    1. Avoidance or minimization of injury or death of marine mammals 
wherever possible (goals 2, 3, and 4 may contribute to this goal).
    2. A reduction in the numbers of marine mammals (total number or 
number at biologically important time or location) exposed to kayak, 
motorboat, or dinghy operations or visual presence that we expect to 
result in the take of marine mammals (this goal may contribute to 1, 
above, or to reducing harassment takes only).
    3. A reduction in the number of times (total number or number at 
biologically important time or location) individuals exposed to kayak, 
motorboat, or dinghy operations or visual presence that we expect to 
result in the take of marine mammals (this goal may contribute to 1, 
above, or to reducing harassment takes only).
    4. A reduction in the intensity of exposures (either total number 
or number at biologically important time or location) to kayak, 
motorboat, or dinghy operations or visual presence that we expect to 
result in the take of marine mammals (this goal may contribute to a, 
above, or to reducing the severity of harassment takes only).
    5. Avoidance or minimization of adverse effects to marine mammal 
habitat, paying special attention to the food base, activities that 
block or limit passage to or from biologically important areas, 
permanent destruction of habitat, or temporary destruction/disturbance 
of habitat during a biologically important time.
    6. For monitoring directly related to mitigation--an increase in 
the probability of detecting marine mammals, thus allowing for more 
effective implementation of the mitigation.
    Based on the evaluation of Glacier Bay NP's proposed measures, NMFS 
has determined that the proposed mitigation measures provide the means 
of effecting the least practicable impact on marine mammal species or 
stocks and their habitat, paying particular attention to rookeries, 
mating grounds, and areas of similar significance.

Monitoring

    In order to issue an ITA for an activity, section 101(a)(5)(D) of 
the MMPA states that NMFS must set forth ``requirements pertaining to 
the monitoring and reporting of such taking.'' The MMPA implementing 
regulations at 50 CFR 216.104(a)(13) indicate that requests for 
Authorizations must include the suggested means of accomplishing the 
necessary monitoring and reporting that will result in increased 
knowledge of the species and of the level of taking or impacts on 
populations of marine mammals that we expect to be present in the 
proposed action area.
    Glacier Bay NP submitted a marine mammal monitoring plan in section 
13 of their Authorization application. NMFS or the Glacier Bay NP has 
not modified or supplemented the plan based on comments or new 
information received from the public during the public comment period.
    Monitoring measures prescribed by NMFS should accomplish one or 
more of the following general goals:
    1. An increase in the probability of detecting marine mammals in 
order to generate more data to contribute to the analyses mentioned 
later;
    2. An increase in our understanding of how many marine mammals 
would be affected by the research activities and the likelihood of 
associating those exposures with specific adverse effects, such as 
behavioral harassment, temporary or permanent threshold shift;
    3. An increase in our understanding of how marine mammals respond 
to acoustic and visual stimuli that we expect to result in take and how 
those anticipated adverse effects on individuals (in different ways and 
to varying degrees) may impact the population, species, or stock 
(specifically through effects on annual rates of recruitment or 
survival) through any of the following methods:
    a. Behavioral observations in the presence of stimuli compared to 
observations in the absence of stimuli (i.e., we need to be able to 
accurately predict received level, distance from source, and other 
pertinent information);
    b. Physiological measurements in the presence of stimuli compared 
to observations in the absence of stimuli (i.e., we need to be able to 
accurately predict received level, distance from source, and other 
pertinent information);
    c. Distribution and/or abundance comparisons in times or areas with 
concentrated stimuli versus times or areas without stimuli;
    4. An increased knowledge of the affected species; and
    5. An increase in our understanding of the effectiveness of certain 
mitigation and monitoring measures.
    As part of its Authorization application, Glacier Bay NP proposes 
to sponsor marine mammal monitoring during the present project, in 
order to implement the mitigation measures that require real-time 
monitoring, and to satisfy the monitoring requirements of the 
Authorization.
    The Glacier Bay NP researchers will monitor the area for pinnipeds 
during all research activities. Monitoring activities will consist of 
conducting and recording observations on pinnipeds within the vicinity 
of the proposed research areas. The monitoring notes would provide 
dates and location of the researcher's activities and the number and 
type of species present. The researchers would document the behavioral 
state of animals present, and any apparent disturbance reactions or 
lack thereof.

Reporting

    Glacier Bay NP will submit a final monitoring report to us no later 
than 90 days after the expiration of the Incidental Harassment 
Authorization, if we issue it. The final report will describe the 
operations conducted and sightings of marine mammals near the proposed 
project. The report will provide full documentation of methods, 
results, and interpretation pertaining to all monitoring. The final 
report will provide:
    1. A summary and table of the dates, times, and weather during all 
research activities.
    2. Species, number, location, and behavior of any marine mammals 
observed throughout all monitoring activities.
    3. An estimate of the number (by species) of marine mammals exposed 
to acoustic or visual stimuli associated with the research activities.
    4. A description of the implementation and effectiveness of the 
monitoring and mitigation measures of the Authorization and full 
documentation of methods, results, and interpretation pertaining to all 
monitoring.
    In the unanticipated event that the specified activity clearly 
causes the take of a marine mammal in a manner prohibited by the 
authorization, such as an injury (Level A harassment), serious injury, 
or mortality (e.g., vessel-strike, stampede, etc.), Glacier Bay NP 
shall immediately cease the specified activities and immediately report 
the incident to the Chief, Permits and Conservation Division, Office of 
Protected Resources, NMFS, at 301-427-8401 and/or by email to 
[email protected] and [email protected] and the Alaska Regional 
Stranding Coordinator at (907) 586-7248 ([email protected]). The 
report must include the following information:

[[Page 56069]]

     Time, date, and location (latitude/longitude) of the 
incident;
     Description and location of the incident (including water 
depth, if applicable);
     Environmental conditions (e.g., wind speed and direction, 
Beaufort sea state, cloud cover, and visibility);
     Description of all marine mammal observations in the 24 
hours preceding the incident;
     Species identification or description of the animal(s) 
involved;
     Fate of the animal(s); and
     Photographs or video footage of the animal(s) (if 
equipment is available).
    Glacier Bay NP shall not resume its activities until NMFS is able 
to review the circumstances of the prohibited take. We will work with 
Glacier Bay to determine what is necessary to minimize the likelihood 
of further prohibited take and ensure MMPA compliance. Glacier Bay NP 
may not resume their activities until notified by us via letter, email, 
or telephone.
    In the event that Glacier Bay NP discovers an injured or dead 
marine mammal, and the lead researcher determines that the cause of the 
injury or death is unknown and the death is relatively recent (i.e., in 
less than a moderate state of decomposition as we describe in the next 
paragraph), Glacier Bay NP will immediately report the incident to the 
Chief, Permits and Conservation Division, Office of Protected 
Resources, NMFS, at 301-427-8401 and/or by email to 
[email protected] and [email protected] and the Alaska Regional 
Stranding Coordinator at (907) 586-7248 ([email protected]). The 
report must include the same information identified in the paragraph 
above this section. Activities may continue while we review the 
circumstances of the incident. We will work with Glacier Bay NP to 
determine whether modifications in the activities are appropriate. 
Activities may continue while we review the circumstances of the 
incident.
    In the event that Glacier Bay NP discovers an injured or dead 
marine mammal, and the lead visual observer determines that the injury 
or death is not associated with or related to the authorized activities 
(e.g., previously wounded animal, carcass with moderate to advanced 
decomposition, or scavenger damage), Glacier Bay will report the 
incident to the Incidental Take Program Supervisor, Permits and 
Conservation Division, Office of Protected Resources, NMFS, at 301-427-
8401 and/or by email to [email protected] and [email protected] 
and the Alaska Regional Stranding Coordinator at (907) 586-7248 
([email protected]) within 24 hours of the discovery. Glacier Bay 
NP researchers will provide photographs or video footage (if available) 
or other documentation of the stranded animal sighting to us. Glacier 
Bay NP can continue their research activities. Activities may continue 
while we review the circumstances of the incident.

Estimated Take by Incidental Harassment

    Except with respect to certain activities not pertinent here, the 
MMPA defines ``harassment'' as: Any act of pursuit, torment, or 
annoyance which (i) has the potential to injure a marine mammal or 
marine mammal stock in the wild [Level A harassment]; or (ii) 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 [Level B harassment].
    Acoustic (i.e., increased sound) and visual stimuli from the 
proposed research activities may have the potential to result in the 
behavioral disturbance of some marine mammals. Thus, NMFS proposes to 
authorize take by Level B harassment only for the proposed seabird 
monitoring and research activities on Boulder, Lone, and Flapjack 
Islands, and Geikie Rock, Alaska.
    Based on pinniped survey counts conducted by Glacier Bay NP (e.g., 
Mathews & Pendleton, 2006; Womble et al., 2010), NMFS estimates that 
the research activities could potentially affect by Level B behavioral 
harassment 400 harbor seals over the course of the Authorization (Table 
3). This estimate represents 12.6 percent of the Glacier Bay/Icy Strait 
stock of harbor seals and accounts for a maximum disturbance of 20 
harbor seals each per visit at Boulder, Lone, and Flapjack Islands, and 
Geikie Rock, Alaska over a maximum level of five visits.
    There is no evidence that Glacier Bay NP's planned activities could 
result in injury, serious injury, or mortality within the action area. 
Moreover, the required mitigation and monitoring measures would 
minimize further any potential risk for injury, serious injury, or 
mortality. Thus, we do not propose to authorize any injury, serious 
injury, or mortality. We expect all potential takes to fall under the 
category of Level B harassment only.

Encouraging and Coordinating Research

    Glacier Bay NP actively monitors harbor seals at breeding and 
molting haul out locations to assess trends over time (e.g., Mathews & 
Pendleton, 2006; Womble et al. 2010, Womble and Gende, 2013b). This 
monitoring program involves collaborations with biologists from the 
Alaska Department of Fish and Game, and the National Marine Mammal 
Laboratory. Glacier Bay NP will continue these collaborations and 
encourage continued or renewed monitoring of marine mammal species. 
Additionally, they would report vessel-based counts of marine mammals, 
branded, or injured animals, and all observed disturbances to the 
appropriate state and federal agencies.

Analysis and Determinations

Negligible Impact

    Negligible impact' is ``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'' (50 CFR 216.103). The lack of 
likely adverse effects on annual rates of recruitment or survival 
(i.e., population level effects) forms the basis of a negligible impact 
finding. Thus, an estimate of the number of Level B harassment takes, 
alone, is not enough information on which to base an impact 
determination. In addition to considering estimates of the number of 
marine mammals that might be ``taken'' through behavioral harassment, 
NMFS must consider other factors, such as the likely nature of any 
responses (their intensity, duration, etc.), the context of any 
responses (critical reproductive time or location, migration, etc.), as 
well as the number and nature of estimated Level A harassment takes, 
and the number of estimated mortalities, effects on habitat, and the 
status of the species.
    In making a negligible impact determination, NMFS considers:
     The number of anticipated injuries, serious injuries, or 
mortalities;
     The number, nature, and intensity, and duration of Level B 
harassment; and
     The context in which the takes occur (e.g., impacts to 
areas of significance, impacts to local populations, and cumulative 
impacts when taking into account successive/contemporaneous actions 
when added to baseline data);
     The status of stock or species of marine mammals (i.e., 
depleted, not depleted, decreasing, increasing, stable, impact relative 
to the size of the population);

[[Page 56070]]

     Impacts on habitat affecting rates of recruitment/
survival; and
     The effectiveness of monitoring and mitigation measures to 
reduce the number or severity of incidental take.
    For reasons stated previously in this document and based on the 
following factors, Glacier Bay NP's specified activities are not likely 
to cause long-term behavioral disturbance, permanent threshold shift, 
or other non-auditory injury, serious injury, or death. These reasons 
include:
    1. The effects of the research activities would be limited to 
short-term startle responses and localized behavioral changes due to 
the short and sporadic duration of the research activities. Minor and 
brief responses, such as short-duration startle or alert reactions, are 
not likely to constitute disruption of behavioral patterns, such as 
migration, nursing, breeding, feeding, or sheltering.
    2. The availability of alternate areas for pinnipeds to avoid the 
resultant acoustic and visual disturbances from the research 
operations. Anecdotal reports from previous Glacier Bay NP activities 
have shown that the pinnipeds returned to the various sites and did not 
permanently abandon haul-out sites after Glacier Bay NP conducted their 
research activities.
    3. The low potential for large-scale movements leading to injury, 
serious injury, or mortality because the researchers would delay 
ingress into the landing areas only after the pinnipeds have slowly 
entered the water.
    4. Glacier Bay NP limiting access to Boulder, Lone, and Flapjack 
Islands, and Geikie Rock if more than 25 animals are present or if 
Steller sea lions are present in the research areas.
    NMFS does not anticipate that any injuries, serious injuries, or 
mortalities would occur as a result of Glacier Bay's proposed 
activities, and NMFS does not propose to authorize injury, serious 
injury, or mortality at this time.
    Due to the nature, degree, and context of Level B (behavioral) 
harassment anticipated and described (see ``Potential Effects on Marine 
Mammals'' section in the in the notice of proposed authorization (79 FR 
32226, June 4, 2014), we do not expect the activity to impact rates of 
recruitment or survival for any affected species or stock. In addition, 
the research activities would not take place in areas of significance 
for marine mammal feeding, resting, breeding, or calving and would not 
adversely impact marine mammal habitat.
    NMFS finds that Glacier Bay NP's proposed activities will have a 
negligible impact on the affected species or stocks based on the 
analysis contained in this notice of the likely effects of the 
specified activity on marine mammals and their habitat, and taking into 
consideration the implementation of the mitigation and monitoring 
measures.

Small Numbers

    As mentioned previously, NMFS estimates that Glacier Bay NP's 
activities could potentially affect, by Level B harassment only, one 
species of marine mammal under our jurisdiction. For harbor seals, this 
estimate is small (12.6 percent) relative to the population size.
    Based on the analysis contained in this notice of the likely 
effects of the specified activity on marine mammals and their habitat, 
and taking into consideration the implementation of the mitigation and 
monitoring measures, NMFS finds that Glacier Bay NP's proposed 
activities would take small numbers of marine mammals relative to the 
populations of the affected species or stocks.

Impact on Availability of Affected Species or Stock for Taking for 
Subsistence Uses

    There are no relevant subsistence uses of marine mammals implicated 
by this action. Glacier Bay National Park prohibits subsistence harvest 
of harbor seals within the Park (Catton, 1995).

Endangered Species Act (ESA)

    NMFS does not expect that Glacier Bay NP's proposed research 
activities would affect any species listed under the ESA. Therefore, 
NMFS has determined that a section 7 consultation under the ESA is not 
required.

National Environmental Policy Act (NEPA)

    To meet our NEPA requirements for the issuance of an Authorization 
to Glacier Bay NP, we prepared an Environmental Assessment (EA) titled, 
``Environmental Assessment for the Issuance of an Incidental Harassment 
Authorization To Take Marine Mammals by Harassment Incidental to 
Conducting Seabird Research in Glacier Bay Alaska.'' We provided 
relevant environmental information to the public through a previous 
notice for the proposed Authorization (79 FR 32226, June 4, 2014) and 
considered public comments received in response prior to finalizing our 
EA and deciding whether or not to issue a Finding of No Significant 
Impact (FONSI).
    We conclude that issuance of an Incidental Harassment Authorization 
would not significantly affect the quality of the human environment and 
have issued a FONSI. Our EA and FONSI for this activity are available 
upon request (see ADDRESSES).

Authorization

    As a result of these determinations, we have issued an Incidental 
Harassment Authorization to Glacier Bay National Park for conducting 
seabird research September 1 through September 30, 2014, provided they 
incorporate the previously mentioned mitigation, monitoring, and 
reporting requirements.

    Dated: September 15, 2014.
Perry F. Gayaldo,
Deputy Director, Office of Protected Resources, National Marine 
Fisheries Service.
[FR Doc. 2014-22269 Filed 9-17-14; 8:45 am]
BILLING CODE 3510-22-P