[Federal Register Volume 82, Number 30 (Wednesday, February 15, 2017)]
[Notices]
[Pages 10747-10760]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2017-02970]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

RIN 0648-XE926


Takes of Marine Mammals Incidental to Specified Activities; 
Taking Marine Mammals Incidental to the U.S. Air Force Conducting 
Maritime Weapon Systems Evaluation Program Operational Testing Within 
the Eglin Gulf Test and Training Range

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) 
implementing regulations we (NMFS) hereby give notice that we have 
issued an Incidental Harassment Authorization (IHA) to the U.S. Air 
Force, Eglin Air Force Base (Eglin AFB), to take two species of marine 
mammals, the Atlantic bottlenose dolphin (Tursiops truncatus) and 
Atlantic spotted dolphin (Stenella frontalis), by harassment, 
incidental to a Maritime Weapon Systems Evaluation Program (Maritime 
WSEP) within the Eglin Gulf Test and Training Range (EGTTR) in the Gulf 
of Mexico from February 4, 2017 through February 3, 2018. Eglin AFB's 
activities are military readiness activities per the MMPA, as amended 
by the National Defense Authorization Act (NDAA) for Fiscal Year 2004.

DATES: Effective February 4, 2017 through February 3, 2018.

ADDRESSES: An electronic copy of the final Authorization, Eglin AFB's 
application and their final Environmental Assessment (EA) titled, 
``Maritime Weapons System Evaluation Program'' are available by writing 
to Ms. Jolie Harrison, Chief, Permits and Conservation Division, Office 
of Protected Resources, National Marine Fisheries Service, 1315 East-
West Highway, Silver Spring, MD 20910; by telephoning the contacts 
listed here at 301-427-8401, or by visiting the internet at: http://www.nmfs.noaa.gov/pr/permits/incidental/military.htm.

FOR FURTHER INFORMATION CONTACT: Mr. Dale Youngkin, Office of Protected 
Resources, NMFS, (301) 427-8401.

SUPPLEMENTARY INFORMATION: 

Background

    Sections 101(a)(5)(A) and (D) of the Marine Mammal Protection Act 
of 1972, as amended (MMPA; 16 U.S.C. 1361 et seq.) direct 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 and that NMFS makes certain findings.
    An Authorization for incidental takings for marine mammals shall be 
granted if NMFS finds that the taking will have a negligible impact on 
the species or stock(s), will not have an unmitigable adverse impact on 
the availability of the species or stock(s) for subsistence uses (where 
relevant), and if the permissible methods of taking and requirements 
pertaining to the mitigation, 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.''

[[Page 10748]]

    Where there is the potential for serious injury or death, the 
allowance of incidental taking requires promulgation of regulations 
under section 101(a)(5)(A). Subsequently, a Letter (or Letters) of 
Authorization may be issued as governed by the prescriptions 
established in such regulations, provided that the level of taking will 
be consistent with the findings made for the total taking allowable 
under the specific regulations. Under section 101(a)(5)(D), NMFS may 
authorize incidental taking by harassment only (i.e., no serious injury 
or mortality) for periods of not more than one year, pursuant to 
requirements and conditions contained within an Incidental Harassment 
Authorization (IHA). The promulgation of regulations or issuance of 
IHAs (with their associated prescripted mitigation, monitoring, and 
reporting) requires notice and opportunity for public comment.
    The NDAA (Pub. L. 108-136) removed the ``small numbers'' and 
``specified geographical region'' limitations indicated earlier and 
amended the definition of harassment as it applies to a ``military 
readiness activity'' to read as follows (section 3(18)(B) of the MMPA): 
(i) Any act that injures or has the significant potential to injure a 
marine mammal or marine mammal stock in the wild (Level A Harassment); 
or (ii) any act that disturbs or is likely to disturb a marine mammal 
or marine mammal stock in the wild by causing disruption of natural 
behavioral patterns, including, but not limited to, migration, 
surfacing, nursing, breeding, feeding, or sheltering, to a point where 
such behavioral patterns are abandoned or significantly altered (Level 
B Harassment).

Summary of Request

    On February 4, 2016, we issued an Authorization to Eglin AFB to 
take marine mammals, by harassment, incidental to a Maritime WSEP 
within the EGTTR in the Gulf of Mexico from February 4, 2016 through 
February 3, 2017 (see 81 FR 7307; February 11, 2016). These missions 
were very similar to previous Maritime WSEP mission activities for 
which incidental harassment authorizations were issued the previous 
year (80 FR 17394; April 1, 2015). On September 19, 2016, we received a 
renewal request for an Authorization from Eglin AFB to continue the 
missions authorized in 2016. We considered the revised renewal request 
as adequate and complete on September 27, 2016.
    Due to the ongoing nature of these activities, as well as the fact 
that other mission activities are conducted within the EGTTR, we have 
discussed developing a rulemaking to encompass all mission activities 
in the EGTTR, and anticipate that the Maritime WSEP activities will be 
part of that future rulemaking. However, this Authorization is being 
granted due to timing constraints to ensure that these activities are 
in compliance with the MMPA while the future rulemaking is in process.
    Eglin AFB will conduct Maritime WESP missions within the EGTTR 
airspace over the Gulf of Mexico within Warning Area 151 (W-151), 
specifically within sub-area W-151A (see Figure 2-1 of Eglin AFB's 
application and Figure 1 below). The Maritime WSEP training activities 
are planned to occur during daylight hours in February and March 2017, 
however, the activities could occur between February 4, 2017, and 
February 3, 2018.
    Eglin AFB will use multiple types of live munitions (e.g., gunnery 
rounds, rockets, missiles, and bombs) against small boat targets in the 
EGTTR. These activities qualify as military readiness activities.
    The following aspects of the Maritime WSEP training activities have 
the potential to take marine mammals: Exposure to impulsive noise and 
pressure waves generated by live ordnance detonation at or near the 
surface of the water. Take, by Level B harassment, of individuals of 
common bottlenose dolphin or Atlantic spotted dolphin could potentially 
result from the specified activity. Additionally, although NMFS does 
not expect it to occur, Eglin AFB has also requested authorization for 
Level A harassment of up to four individuals of either common 
bottlenose dolphins (2) or Atlantic spotted dolphins (1). Therefore, 
Eglin AFB requested authorization to take individuals of two cetacean 
species by Level A and Level B harassment.
    Eglin AFB's Maritime WSEP training activities may potentially 
impact marine mammals at or near the water surface in the absence of 
mitigation. Marine mammals could potentially be harassed, injured, or 
killed by exploding and non-exploding projectiles, and falling debris. 
However, based on analyses provided in Eglin AFB's 2016 application, 
Eglin AFB's previous applications and Authorizations, Eglin AFB's EA, 
and past monitoring reports for the authorized activities conducted in 
February and March 2016 and 2015, and for reasons discussed later in 
this document, we do not anticipate that Eglin AFB's Maritime WSEP 
activities will result in any serious injury or mortality to marine 
mammals.
    For Eglin AFB, this will be the third such Maritime WSEP 
Authorization following the Authorization issued effective from 
February 4, 2016, through February 3, 2017 (see 81 FR 7307; February 
11, 2016). This Authorization will be effective from February 4, 2017, 
through February 3, 2018. The monitoring report associated with the 
2016 Authorization is available at www.nmfs.noaa.gov/pr/permits/incidental/military.htm and provides additional environmental 
information related to issuance of this Authorization.

Description of the Specified Activity

Overview

    Eglin AFB will conduct live ordnance testing and training in the 
EGTTR within the Gulf of Mexico as part of the Maritime WSEP 
operational testing missions. The Maritime WSEP test objectives are to 
evaluate maritime deployment data, evaluate tactics, techniques and 
procedures, and to determine the impact of techniques and procedures on 
combat Air Force training. The need to conduct this type of testing has 
developed in response to increasing threats at sea posed by operations 
conducted from small boats, which can carry a variety of weapons, can 
form in large or small numbers, and may be difficult to locate, track, 
and engage in the marine environment. Because of limited Air Force 
aircraft and munitions testing on engaging and defeating small boat 
threats, Eglin AFB will employ live munitions against boat targets in 
the EGTTR in order to continue development of techniques and procedures 
to train Air Force strike aircraft to counter small maneuvering surface 
vessels.

Dates and Duration

    Eglin AFB will schedule up to eight Maritime WSEP training missions 
occurring during a one-week period in February 2017 and a one-week 
period in March 2017. The missions will occur for up to four hours each 
day during the morning hours, with multiple live munitions being 
released per day. However, the Authorization is effective to cover 
those activities anytime during the period from February 4, 2017 
through February 3, 2018.

Specified Geographic Region

    The specific planned mission location is approximately 17 miles 
(mi) (27.3 kilometers (km)) offshore from Santa Rosa Island, Florida, 
in nearshore waters of the continental shelf in the Gulf of Mexico. All 
activities will place within the EGTTR, defined as the

[[Page 10749]]

airspace over the Gulf of Mexico controlled by Eglin AFB, beginning at 
a point 3 nautical miles (nmi) (3.5 mi; 5.5 km) from shore. The EGTTR 
consists of subdivided blocks including Warning Area 151 (W-151) where 
the activities will occur, specifically in sub-area W-151A (shown in 
Figure 1).
    W-151: The inshore and offshore boundaries of W-151 are roughly 
parallel to the shoreline contour. The shoreward boundary is 3 nmi (3.5 
mi; 5.5 km) from shore, while the seaward boundary extends 
approximately 85 to 100 nmi (97.8 mi; 157.4 km to 115 mi; 185.2 km) 
offshore, depending on the specific location. W-151 covers a surface 
area of approximately 10,247 square nmi (nmi\2\) (13,570 square mi 
(mi\2\); 35,145 square km (km\2\)), and includes water depths ranging 
from about 20 to 700 meters (m) (65.6 to 2296.6 feet (ft)). This range 
of depth includes continental shelf and slope waters. Approximately 
half of W-151 lies over the shelf.
    W-151A: W-151A extends approximately 60 nmi (69.0 mi; 111.1 km) 
offshore and has a surface area of 2,565 nmi\2\ (3,396.8 mi\2\; 8,797 
km\2\). Water depths range from about 30 to 350 m (98.4 to 1148.2 ft) 
and include continental shelf and slope zones. However, most of W-151A 
occurs over the continental shelf, in water depths less than 250 m 
(820.2 ft). Maritime WSEP training missions will occur in the 
shallower, northern inshore portion of the sub-area, in a water depth 
of about 35 m (114.8 ft).
[GRAPHIC] [TIFF OMITTED] TN15FE17.000

Detailed Description of Activities

    The Maritime WSEP training missions include the release of multiple 
types of inert and live munitions from fighter and bomber aircraft, 
unmanned aerial vehicles, and gunships against small, static, towed, 
and remotely-controlled boat targets. Munition types include bombs, 
missiles, rockets, and gunnery rounds (Table 1).

                                      Table 1--Live Munitions and Aircraft
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                   Munitions                            Aircraft (not associated with specific munitions)
----------------------------------------------------------------------------------------------------------------
GBU-10/-24/-31.................................  F-16C fighter aircraft.
GBU-49.........................................  F-16C+ fighter aircraft.
JASSM..........................................  F-15E fighter aircraft.
GBU-12 (PWII)/-54 (LJDAM)/-38/-32 (JDAM).......  A-10 fighter aircraft.
AGM-65 (Maverick)..............................  B-1B bomber aircraft.

[[Page 10750]]

 
CBU-105 (WCMD).................................  B-52H bomber aircraft.
GBU-39 (Small Diameter Bomb)...................  MQ-1/9 unmanned aerial vehicle.
AGM-114 (Hellfire).............................  AC-130 gunship.
AGM-176 (Griffin)..............................
2.75 Rockets/AGR-20A/B.........................
AIM-9X.........................................
PGU-12/B high explosive incendiary 30 mm rounds
----------------------------------------------------------------------------------------------------------------
Key: AGM = air-to-ground missile; CBU = Cluster Bomb Unit; GBU = Guided Bomb Unit; LJDAM = Laser Joint Direct
  Attack Munition; Laser SDB = Laser Small Diameter Bomb; mm = millimeters; PGU = Projectile Gun Unit; WCMD =
  wind corrected munition dispenser.

    The Maritime WSEP training activities involve detonations above the 
water, near the water surface, and under water within the EGTTR. 
However, because the tests will focus on weapons/target interaction, 
Eglin AFB will not specify a particular aircraft for a given test as 
long as it meets the delivery parameters.
    Eglin AFB will deploy the munitions against static, towed, and 
remotely-controlled boat targets within the W-151A. Eglin AFB will 
operate the remote-controlled boats from an instrumentation barge 
(i.e., the Gulf Range Armament Test Vessel (GRATV)) anchored on site 
within the test area. The GRATV provides a platform for video cameras 
and weapons-tracking equipment.
    Table 2 lists the number, height, or depth of detonation, explosive 
material, and net explosive weight (NEW) in pounds (lbs) of each 
munition that will be used during the Maritime WSEP activities.

                       Table 2--Maritime WSEP Munitions To Be Used in the W-151A Test Area
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                                                 Total number                                      Net explosive
               Type of munition                     of live              Detonation type            weight per
                                                   munitions                                      munition (lbs)
----------------------------------------------------------------------------------------------------------------
GBU-10/-24/-31................................               2  Subsurface (10-ft depth)........             945
GBU-49........................................               4  Surface.........................             500
JASSM.........................................               4  Surface.........................             255
GBU-12 (PWII)/-54 (LJDAM)/-38/-32 (JDAM)......               6  Subsurface (10-ft depth)........             192
AGM-65 (Maverick).............................               8  Surface.........................              86
CBU-105 (WCMD)................................               4  Airburst........................              83
GBU-39 (Small Diameter Bomb)..................               4  Surface.........................              37
AGM-114 (Hellfire)............................              20  Subsurface (10-ft depth)........              20
AGM-176 (Griffin).............................              10  Surface.........................              13
2.75 Rockets/AGR-20A/B........................             100  Surface.........................              12
AIM-9X........................................               1  Surface.........................             7.9
PGU-12/B high explosive incendiary 30 mm                 1,000  Surface.........................             0.1
 rounds.
----------------------------------------------------------------------------------------------------------------
Key: AGL = above ground level; AGM = air-to-ground missile; CBU = Cluster Bomb Unit; GBU = Guided Bomb Unit;
  JDAM = Joint Direct Attack Munition; LJDAM = Laser Joint Direct Attack Munition; mm = millimeters; msec =
  millisecond; lbs = pounds; PGU = Projectile Gun Unit; HEI = high explosive incendiary.

    At least two ordnance delivery aircraft will participate in each 
live weapons release training mission, which lasts approximately four 
hours. Before delivering the ordnance, mission aircraft will make a dry 
run over the target area to ensure that it is clear of commercial and 
recreational boats. Jets will fly at a minimum air speed of 300 knots 
(approximately 345 miles per hour, depending on atmospheric conditions) 
and at a minimum altitude of 305 m (1,000 ft). Due to the limited 
flyover duration and potentially high speed and altitude, the pilots 
will not participate in visual surveys for protected species.
    Eglin AFB's 2016 and 2015 Authorization renewal request, 2014 
application for the same activities, and 2015 EA and Finding of No 
Significant Impact (FONSI) contain additional detailed information on 
the Maritime WSEP training activities and are all available online 
(www.nmfs.noaa.gov/pr/permits/incidental/military.htm). NMFS provided 
detailed descriptions of the Maritime WSEP training operations in a 
previous notice for the proposed Authorization (81 FR 83209; November 
21, 2016). This information has not changed between the proposed 
Authorization and this final notice announcing the issuance of the 
Authorization.

Comments and Responses

    A notice of receipt of Eglin AFB's application and NMFS' proposal 
to issue an Authorization to the U.S. Air Force, Eglin AFB, published 
in the Federal Register on November 21, 2016 (81 FR 83209). During the 
30-day public comment period, NMFS received comments from the Marine 
Mammal Commission (MMC) and one concerned citizen. Following, are the 
comments received from the MMC and the concerned citizen, as well as 
NMFS' responses.
    MMC Comment 1: MMC recommended that NMFS (1) follow NMFS policy of 
a 24-hour reset for enumerating the number of each species that could 
be taken during the proposed activities; (2) apply standard rounding 
rule before summing the numbers of estimated takes across days; and (3) 
for species that have the potential to be taken but model-estimated or 
calculated takes round to zero, use group size to inform the take 
estimates--The MMC recommended that NMFS use these methods consistently 
for all future incidental take authorizations.
    Response: Calculating predicted take is not an exact science, and 
there are

[[Page 10751]]

arguments for taking different mathematical approaches in different 
situations and for making qualitative adjustments in other situations. 
NMFS is currently engaged in developing a protocol to guide more 
consistent take calculations given certain circumstances. However, we 
believe that the method used here supports the most appropriate take 
estimate for this action and does not run counter to any ``24-hour 
reset policy.''
    MMC Comment 2: The MMC states that Eglin AFB has used, and proposes 
to continue the use of live-feed video cameras to supplement its 
effectiveness in detecting marine mammals when implementing mitigation 
measures. However, the MMC is not convinced that those measures are 
sufficient to effectively monitor for marine mammals entering the 
training areas during the 30-minute timeframe prior to detonation. In 
addition, the MMC states that it does not believe that Eglin AFB can 
deem the Level A harassment zone clear of marine mammals when using 
only three video cameras for monitoring. Thus, the MMC recommends that 
NMFS require Eglin AFB to (1) supplement its mitigation measures with 
passive acoustic monitoring and (2) determine the effectiveness of its 
suite of mitigation measures for activities at Eglin prior to 
incorporating presumed mitigation effectiveness into its take 
estimation analyses or negligible impact determinations.
    Response: NMFS has worked closely with Eglin AFB over the past 
several Authorization cycles to develop proper mitigation, monitoring, 
and reporting requirements designed to minimize and detect impacts from 
the specified activities and ensure that NMFS can make the findings 
necessary for issuance of an Authorization. Further, the take 
estimation and negligible impact determinations in this Authorization 
do not rely on a presumption of mitigation effectiveness. Take 
estimates were based on modeling efforts and were not reduced due to 
mitigation measures.
    Monitoring also includes vessel-based observers for marine species 
up to 30 minutes prior to deploying live munitions in the area. Eglin 
AFB has submitted annual reports to NMFS every year that describes all 
activities that occur in the EGTTR. In addition, Eglin AFB submitted 
annual reports to NMFS at the conclusion of the Maritime Strike 
Operations These missions are similar in nature to the maritime WSEP 
operations and the Eglin AFB provided information on sighting 
information and results from post-mission survey observations. Based on 
those results, NMFS determined that the mitigation measures ensured the 
least practicable adverse impact to marine mammals. There were no 
observations of injured marine mammals and no reports of marine mammal 
mortality during the Maritime Strike Operation activities. The measures 
for the Maritime WSEP are similar, except they will include larger 
survey areas based on updated acoustic analysis and previous 
discussions with the MMC and NMFS.
    Eglin AFB will continue to research the feasibility of 
supplementing existing monitoring efforts with passive acoustic 
monitoring devices for future missions, and has recently requested 
funding to do so. However, even if this funding request is approved, 
the funds will not be available to implement the additional measures 
for this Authorization. If funding is approved, passive acoustic 
monitoring will be included in future missions that may be part of the 
proposed rule to cover multiple activities in the EGTTR.
    Concerned Citizen Comment 1: The private citizen commented that the 
U.S. Air Force should ``bomb dead areas like the Gulf of Mexico where 
no life can live anyway'', and expressed opposition to the U.S. Air 
Force proposed Maritime WSEP activities out of concern that endangered 
animals would be harmed.
    Response: As noted in the Federal Register on November 21, 2016 (81 
FR 83209), the Maritime WSEP activities will take place in the Gulf of 
Mexico. In addition, due to the location of the activities, no 
threatened or endangered species are anticipated to be taken and NMFS 
has not authorized any take of threatened or endangered species. 
Finally, the information presented in the notice for the proposed 
Authorization (81 FR 83209; November 21, 2016) indicates that modeling 
results show zero takes for mortality, and three takes by Level A 
harassment. We make a correction: Table 9 of the proposed Authorization 
indicated these three Level A takes were for permanent threshold shift 
(PTS) only. However, the correct estimate includes three PTS takes and 
one slight lung injury take. However, NMFS does not believe that 
serious injury will result from this activity and that therefore it is 
not necessary to issue regulations through section 101(a)(5)(A) of the 
MMPA, rather, an IHA is appropriate.

Description of Marine Mammals in the Area of the Specified Activity

    Table 3 lists marine mammal species with potential or confirmed 
occurrence in the activity area during the project timeframe and 
summarizes key information regarding stock status and abundance. Please 
see NMFS' 2015 and 2014 Stock Assessment Reports (SAR), available at 
www.nmfs.noaa.gov/pr/sars and Garrison et al., 2008; Navy, 2007; Davis 
et al., 2000 for more detailed accounts of these stocks' status and 
abundance.

                           Table 3--Marine Mammals That May Occur in the Activity Area
----------------------------------------------------------------------------------------------------------------
                                                        Regulatory status 1     Estimated          Relative
            Species                   Stock name                 2              abundance     occurrence  in W-
-----------------------------------------------------------------------------------------------------151--------
Common bottlenose dolphin.....  Choctawatchee Bay.....  MMPA-S.............             179  Uncommon.
                                                        ESA-NL.............   \3\ CV = 0.04
                                Pensacola/East Bay....  MMPA-S.............              33  Uncommon.
                                                        ESA-NL.............   \4\ CV = 0.80
                                St. Andrew Bay........  MMPA-S.............             124  Uncommon.
                                                        ESA-NL.............   \4\ CV = 0.57
                                Gulf of Mexico          MMPA-S.............           7,185  Common.
                                 Northern Coastal.      ESA-NL.............   \3\ CV = 0.21
                                Northern Gulf of        MMPA-NC............          51,192  Uncommon.
                                 Mexico Continental     ESA-NL.............   \3\ CV = 0.10
                                 Shelf.
                                Northern Gulf of        MMPA-NC............           5,806  Uncommon.
                                 Mexico Oceanic.        ESA-NL.............   \4\ CV = 0.39

[[Page 10752]]

 
Atlantic spotted dolphin......  Northern Gulf of        MMPA-NC............      \4\ 37,611  Common.
                                 Mexico.                ESA-NL.............       CV = 0.28
----------------------------------------------------------------------------------------------------------------
\1\ MMPA: D = Depleted, S = Strategic, NC = Not Classified.
\2\ ESA: EN = Endangered, T = Threatened, DL = Delisted, NL = Not listed.
\3\ NMFS Draft 2015 SAR (Waring et al., 2015).
\4\ NMFS 2014 SAR (Waring et al., 2014).

    An additional 19 cetacean species could occur within the 
northeastern Gulf of Mexico, mainly occurring at or beyond the shelf 
break (i.e., water depth of approximately 200 m (656.2 ft)) located 
beyond the W-151A test area. NMFS and Eglin AFB consider these 19 
species to be rare or extralimital within the W-151A test location 
area. These species are the Bryde's whale (Balaenoptera edeni), sperm 
whale (Physeter macrocephalus), dwarf sperm whale (Kogia sima), pygmy 
sperm whale (K. breviceps), pantropical spotted dolphin (Stenella 
attenuata), Clymene dolphin (S. clymene), spinner dolphin (S. 
longirostris), striped dolphin (S. coeruleoalba), Blainville's beaked 
whale (Mesoplodon densirostris), Gervais' beaked whale (M. europaeus), 
Cuvier's beaked whale (Ziphius cavirostris), killer whale (Orcinus 
orca), false killer whale (Pseudorca crassidens), pygmy killer whale 
(Feresa attenuata), Risso's dolphin (Grampus griseus), Fraser's dolphin 
(Lagenodelphis hosei), melon-headed whale (Peponocephala electra), 
rough-toothed dolphin (Steno bredanensis), and short-finned pilot whale 
(Globicephala macrorhynchus).
    Of these species, only the sperm whale is listed as endangered 
under the Endangered Species Act (ESA) and as depleted throughout its 
range under the MMPA. Sperm whale occurrence within W-151A is unlikely 
because almost all reported sightings have occurred in water depths 
greater than 200 m (656.2 ft).
    Because these species are unlikely to occur within the W-151A area, 
Eglin AFB has not requested and we are not proposing to authorize take 
for them. Thus, we do not consider these species further in this 
notice.
    We have reviewed Eglin AFB's species descriptions, including life 
history information, distribution, regional distribution, diving 
behavior, and acoustics and hearing, for accuracy and completeness. 
That information is contained in sections 3 and 4 of Eglin AFB's 2016 
Authorization application and in Chapter 3 of Eglin AFB's Environmental 
Assessment (EA) and we incorporate those sections by reference rather 
than reprinting the information here.

Other Marine Mammals in the Action Area

    The endangered West Indian manatee (Trichechus manatus) rarely 
occurs in the area (USAF 2014). The U.S. Fish and Wildlife Service has 
jurisdiction over the manatee; therefore, we did not include an 
Authorization to harass manatees and do not discuss this species 
further in this notice.

Potential Effects of the Specified Activity on Marine Mammals and Their 
Habitat

    This section of the notice of the proposed Authorization (81 FR 
83209, November 21, 2016) included a summary and discussion of the ways 
that components (e.g., exposure to impulsive noise and pressure waves 
generated by live ordnance detonation at or near the surface of the 
water) of the specified activity, including mitigation, may impact 
marine mammals and their habitat. The ``Estimated Take by Incidental 
Harassment'' section later in this document will include a quantitative 
analysis of the number of individuals that we expect Eglin AFB to take 
during this activity. The ``Negligible Impact Analysis'' section will 
include the analysis of how this specific activity will impact marine 
mammals. We will consider the content of the following sections: 
``Estimated Take by Incidental Harassment'' and ``Mitigation'' to draw 
conclusions regarding the likely impacts of these activities on the 
reproductive success or survivorship of individuals--and from that 
consideration--the likely impacts of this activity on the affected 
marine mammal populations or stocks.
    In summary, the Maritime WSEP training exercises under this 
Authorization have the potential to take marine mammals by exposing 
them to impulsive noise and pressure waves generated by live ordnance 
detonation at or near the surface of the water. Exposure to energy or 
pressure resulting from these detonations could result in Level A 
harassment (PTS and slight lung injury) and by Level B harassment 
(temporary threshold shift (TTS) and behavioral harassment). In 
addition, NMFS also considered the potential for harassment from vessel 
operations.
    The potential effects of impulsive sound sources (underwater 
detonations) from the training activities may include one or more of 
the following: Tolerance, masking, disturbance, hearing threshold 
shift, stress response, and mortality. NMFS provided detailed 
information on these potential effects in the notice of the proposed 
Authorization (81 FR 83209; November 21, 2016). The information 
presented in that notice has not changed.

Anticipated Effects on Habitat

    Detonations of live ordnance will result in temporary changes to 
the water environment. Munitions could hit the targets and not explode 
in the water. However, because the targets are located over the water, 
in water explosions could occur. An underwater explosion from these 
weapons could send a shock wave and blast noise through the water, 
release gaseous by-products, create an oscillating bubble, and cause a 
plume of water to shoot up from the water surface. However, these 
effects will be temporary and not expected to last more than a few 
seconds.
    Similarly, Eglin AFB does not expect any long-term impacts with 
regard to hazardous constituents to occur. Eglin AFB considered the 
introduction of fuel, debris, ordnance, and chemical materials into the 
water column within its EA and determined the potential effects of each 
to be insignificant. NMFS provided a summary of the analyses in the 
notice for the proposed Authorization (81 FR 83209; November 21, 2016). 
The information presented in that notice has not changed.

Mitigation

    In order to issue an 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

[[Page 10753]]

habitat, paying particular attention to rookeries, mating grounds, and 
areas of similar significance, and the availability of such species or 
stock for taking for certain subsistence uses (where relevant).
    The NDAA of 2004 amended the MMPA as it relates to military-
readiness activities and the incidental take authorization process such 
that ``least practicable adverse impact'' shall include consideration 
of personnel safety, practicality of implementation, and impact on the 
effectiveness of the military readiness activity.
    NMFS and Eglin AFB worked to identify potential practicable and 
effective mitigation measures, which include a careful balancing of the 
likely benefit of any particular measure to the marine mammals with the 
likely effect of that measure on personnel safety, practicality of 
implementation, and impact on the ``military-readiness activity.'' We 
refer the reader to section 11 of Eglin AFB's application for more 
detailed information on mitigation measures which include the 
following:

Vessel-Based Monitoring

    Eglin AFB will station a large number of range clearing boats 
(approximately 30 to 35) around the test site to prevent non-
participating vessels from entering the human safety zone. Based on the 
composite footprint, range clearing boats will be located approximately 
15.28 km (9.5 mi) from the detonation point (see Figure 11-1 in Eglin 
AFB's application). However, the actual distance will vary based on the 
size of the munition being deployed.
    Trained protected species observers (PSO) will be aboard five of 
these boats and will conduct protected species surveys before and after 
each test. The protected species survey vessels will be dedicated 
solely to observing for marine species during the pre-mission surveys 
while the remaining safety boats clear the area of non-authorized 
vessels. The protected species survey vessels will begin surveying the 
area at sunrise. The area to be surveyed will encompass the zone of 
influence (ZOI), which is discussed in more detail below.
    Because of human safety issues, PSOs will be required to leave the 
test area at least 30 minutes in advance of live weapon deployment and 
move to a position on the safety zone periphery, approximately 15.28 km 
(9.5 mi) from the detonation point. PSOs will continue to scan for 
marine mammals from the periphery. Animals that may enter the area 
after Eglin AFB has completed the pre-mission surveys and prior to 
detonation will not reach the predicted smaller slight lung injury and/
or mortality zones due to their swim speed and the size of the 
clearance zone.

Determination of the Zone of Influence

    Historically, Eglin AFB has conservatively used the number of live 
weapons deployed to estimate take of marine mammals. This method 
assumed a fresh population of marine mammals for each detonation to 
calculate the number taken. However, NMFS requested mission-day 
scenarios in order to be able to model accumulated energy. Therefore, 
each mission-day scenario is considered a separate event to model takes 
as opposed to modeling for each live detonation. Eglin AFB developed 
three mission-day categories (Category A, which represents levels of 
activities considered a worst-case scenario consisting of ordnances 
with large explosive weights as well as surface and subsurface 
detonations; Category B, which represents a `typical' mission day based 
on levels of weapons releases during past Maritime WSEP activities; and 
Category C, which represents munitions with smaller explosive weights 
and surface detonations only), and estimated the number of days each 
category will be executed during the 2017 Maritime WSEP missions (See 
Table 1-3 in Eglin AFB's application for the Mission Day Scenarios). 
Table 4 below provides the categorization of mission days (Table 1-3 in 
Eglin AFB's application), and Table 5 provides the maximum range of 
effects for all criteria and thresholds for mission-day Categories A, 
B, and C. These ranges were calculated based on explosive acoustic 
characteristics, sound propagation, and sound transmission loss in the 
study area (which incorporates water depth, sediment type, wind speed, 
bathymetry, and temperature/salinity profiles). Refer to Appendix A of 
Eglin AFB's application for a complete description of the acoustic 
modeling methodology used in the analysis.

                       Table 4--Live Munitions Categorized as Representative Mission Days
----------------------------------------------------------------------------------------------------------------
                                                                                  Mission  days/       Total
Mission  category      Munition      NEW  (lbs)  Detonation type   Munitions/day       year       munitions/year
----------------------------------------------------------------------------------------------------------------
A................  GBU-10/-24/-31.          945  Subsurface (10'               1               2               2
                                                  depth).
                   GBU-49.........          500  Surface........               2  ..............               4
                   JASSM..........          255  Surface........               2  ..............               4
                   GBU-12 (PWII)/-          192  Subsurface (10'               3  ..............               6
                    54 (LJDAM)/-38/               depth).
                    -32 (JDAM).
B................  AGM-65                    86  Surface........               2               4               8
                    (Maverick).
                   CBU-105 (WCMD).           83  Airburst.......               1  ..............               4
                   GBU-39 (Small             37  Surface........               1  ..............               4
                    Diameter Bomb).
                   AGM-114                   20  Subsurface (10'               5  ..............              20
                    (Hellfire).                   depth).
C................  AGM-176                   13  Surface........               5               2              10
                    (Griffin).
                   2.75 rockets or           12  Surface........              50  ..............             100
                    AGR-20A/B.
                   AIM-9X.........          7.9  Surface........               1  ..............               2
                   PGU-12 HEI 30            0.1  Surface........             500  ..............           1,000
                    mm.
----------------------------------------------------------------------------------------------------------------


           Table 5--Criteria and Threshold Radii (in Meters) for Maritime WSEP Mission-Day Categories
----------------------------------------------------------------------------------------------------------------
                                                          Level A harassment            Level B harassment
                                                    ------------------------------------------------------------
                Mission-day category                             PTS                    TTS         Behavioral
                                                    ------------------------------------------------------------
                                                              185 dB SEL            170 dB SEP      165 dB SEL
----------------------------------------------------------------------------------------------------------------
A..................................................                          945           4,666           7,479
B..................................................                          248           2,225           3,959

[[Page 10754]]

 
C..................................................                          286           1,128           1,863
----------------------------------------------------------------------------------------------------------------

    Mortality and slight lung injury threshold ranges would extend from 
47 to 216 m and 84 to 595 m, respectively, depending on the mission-day 
category. These ranges would fall within the Level A harassment ranges. 
Based on the planned activities on a given mission day, and the ranges 
presented in Table 5, Eglin AFB will ensure that the area equating to 
the Level A harassment threshold range is free of protected species. By 
clearing the Level A harassment threshold range of protected species, 
animals that may enter the area after the completed pre-mission surveys 
but prior to detonation would not reach the smaller slight lung injury 
or mortality zones as explained above. Because of human safety issues, 
Eglin AFB will require PSOs to leave the test area at least 30 minutes 
in advance of live weapon deployment and move to a position on the 
safety zone periphery, approximately 15 km (9.5 mi) from the detonation 
point. PSOs will continue to scan for marine mammals from the 
periphery, but effectiveness will be limited as the boat will remain at 
a designated station.
    Video Monitoring: In addition to vessel-based monitoring, Eglin AFB 
will position three high-definition video cameras on the GRATV anchored 
on-site, as described earlier, to allow for real-time monitoring for 
the duration of the mission. The camera configuration and actual number 
of cameras used will depend on specific mission requirements. In 
addition to monitoring the area for mission objective issues, the 
camera(s) will also monitor for the presence of protected species. A 
trained marine species observer from Eglin Natural Resources will be 
located in Eglin AFB's Central Control Facility, along with mission 
personnel, to view the video feed before and during test activities. 
The distance to which objects can be detected at the water surface by 
use of the cameras is considered generally comparable to that of the 
human eye.
    The GRATV will be located about 183 m (600 ft) from the target. The 
mortality threshold ranges correspond to the modified Goertner model 
adjusted for the weight of an Atlantic spotted dolphin calf, and extend 
from 0 to 216 m (0 to 709 ft) from the target, depending on the 
ordnance, and the Level A ranges for both common bottlenose and 
Atlantic spotted dolphins extend up to 945 m (3,100 ft) from the 
target, depending on the ordnance and harassment criterion. Given these 
distances, observers can reasonably be expected to view a substantial 
portion of the mortality zone in front of the camera, although a small 
portion would be behind or to the side of the camera view. Based on 
previous monitoring reports for this activity, the pre-training surveys 
for delphinids and other protected species within the mission area are 
effective. PSOs can view some portion of the Level A harassment zone, 
although the view window will be less than that of the mortality zone 
(a large percentage will be behind or to the side of the camera view).
    In addition to the two types of visual monitoring discussed earlier 
in this section, Eglin AFB personnel will be present within the mission 
area (on boats and on the GRATV) on each day of testing well in advance 
of weapon deployment, typically near sunrise. They will perform a 
variety of tasks including target preparation, equipment checks, etc., 
and will opportunistically observe for marine mammals and indicators as 
feasible throughout test preparation. However, we consider these 
observations as supplemental to the mitigation and monitoring and will 
only occur as time and schedule permits. Eglin AFB personnel will relay 
information on these types of sightings to the Lead Biologist, as 
described in the following mitigation sections.

Pre-Mission Monitoring

    The purposes of pre-mission monitoring are to: (1) Evaluate the 
mission site for environmental suitability, and (2) verify that the ZOI 
is free of visually detectable marine mammals, as well as potential 
indicators of these species. On the morning of the mission, the Test 
Director and Safety Officer will confirm that there are no issues that 
will preclude mission execution and that weather is adequate to support 
mitigation measures.

Sunrise or Two Hours Prior to Mission

    Eglin AFB range clearing vessels and protected species survey 
vessels will be on site at least two hours prior to the mission. The 
Lead Biologist on board one survey vessel will assess the overall 
suitability of the mission site based on environmental conditions (sea 
state) and presence/absence of marine mammal indicators. Eglin AFB 
personnel will communicate this information to Tower Control and 
personnel will relay the information to the Safety Officer in Central 
Control Facility.

One and One-Half Hours Prior to Mission

    Vessel-based surveys will begin approximately one and one-half 
hours prior to live weapons deployment. Surface vessel PSOs will survey 
the ZOI and relay all marine species and indicator sightings, including 
the time of sighting, GPS location, and direction of travel, if known, 
to the Lead Biologist. The Lead Biologist will document all sighting 
information on report forms that he/she will submit to Eglin Natural 
Resources after each mission. Surveys will continue for approximately 
one hour. During this time, Eglin AFB personnel in the mission area 
will also observe for marine species as feasible. If marine mammals or 
indicators are observed within the ZOI for that day's mission 
activities, the range will be declared ``fouled,'' a term that 
signifies to mission personnel that conditions are such that a live 
ordnance drop cannot occur (e.g., protected species or civilian vessels 
are in the mission area). If there are no observations of marine 
mammals or indicators of marine mammals, Eglin AFB will declare the 
range clear of protected species.

One-Half Hour Prior to Mission

    At approximately 30 minutes prior to live weapon deployment, marine 
species PSOs will be instructed to leave the mission site and remain 
outside the safety zone, which on average will be 15.28 km (9.5 mi) 
from the detonation point. The actual size is determined by weapon net 
explosive weight and method of delivery. The survey team will continue 
to monitor for protected

[[Page 10755]]

species while leaving the area. As the survey vessels leave the area, 
marine species monitoring of the immediate target areas will continue 
at the Central Control Facility through the live video feed received 
from the high definition cameras on the GRATV. Once the survey vessels 
have arrived at the perimeter of the safety zone (approximately 30 
minutes after leaving the area per instructions from Eglin AFB, 
depending on actual travel time), Eglin AFB will declare the range as 
``green'' and the mission will proceed, assuming all non-participating 
vessels have left the safety zone as well.

Execution of Mission

    Immediately prior to live weapons drop, the Test Director and 
Safety Officer will communicate to confirm the results of marine mammal 
surveys and the appropriateness of proceeding with the mission. The 
Safety Officer will have final authority to proceed with, postpone, or 
cancel the mission. Eglin AFB will postpone the mission if:
     Any of the high-definition video cameras are not 
operational for any reason;
     Any marine mammal is visually detected within the ZOI. 
Postponement will continue until the animal(s) that caused the 
postponement is: (1) Confirmed to be outside of the ZOI and heading 
away from the targets; or (2) not seen again for 30 minutes and 
presumed to be outside the ZOI due to the animal swimming out of the 
range;
     Any large schools of fish or large flocks of birds feeding 
at the surface are within the ZOI. Postponement will continue until 
Eglin AFB personnel confirm that these potential indicators are outside 
the ZOI:
     Any technical or mechanical issues related to the aircraft 
or target boats; or
     Any non-participating vessel enters the human safety zone 
prior to weapon release.
    In the event of a postponement, protected species monitoring will 
continue from the Central Control Facility through the live video feed. 
Observers will also continue to monitor from the vessels at the safety 
perimeter, with limited effectiveness due to the distance from the 
detonation site.

Post-Mission Monitoring

    Post-mission monitoring determines the effectiveness of pre-mission 
mitigation by reporting sightings of any marine mammals. Post-
detonation monitoring surveys will commence once the mission has ended 
or, if required, as soon as personnel declare the mission area safe. 
Vessels will move into the survey area from outside the safety zone and 
monitor for at least 30 minutes, concentrating on the area down-current 
of the test site. This area is easily identifiable because of the 
floating debris in the water from impacted targets. Up to 10 Eglin AFB 
support vessels will be cleaning debris and collecting damaged targets 
from this area thus spending several hours in the area once Eglin AFB 
completes the mission. PSOs will document and report any marine mammal 
species, number, location, and behavior of any animals observed to 
Eglin Natural Resources.

Mission Delays Due to Weather

    Eglin AFB will delay or reschedule Maritime WSEP missions if the 
Beaufort sea state is greater than number 4 at the time of the testing 
activities. The Lead Biologist aboard one of the survey vessels will 
make the final determination of whether conditions are conducive for 
sighting protected species or not.
    We have carefully evaluated Eglin AFB's 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;
     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 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 times or locations) exposed to stimuli 
expected to result in incidental take (this goal may contribute to 1, 
above, or to reducing takes by behavioral harassment only);
    3. A reduction in the number of times (total number or number at 
biologically important times or locations) individuals will be exposed 
to stimuli 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 times or locations) to training 
exercises that we expect to result in the take of marine mammals (this 
goal may contribute to 1, 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; and
    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 our evaluation of Eglin AFB's mitigation measures, as well 
as other measures that may be relevant to the specified activity, we 
have determined that the 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 (while also 
considering personnel safety, practicality of implementation, and the 
impact of effectiveness of the military readiness activity).

Monitoring and Reporting

    In order to issue an Authorization for an activity, section 
101(a)(5)(D) of the MMPA states that we 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 an authorization must include the suggested means of 
accomplishing the necessary monitoring and reporting that will result 
in increased knowledge of the species and our expectations of the level 
of taking or impacts on populations of marine mammals present in the 
action area.
    Eglin AFB submitted a marine mammal monitoring plan in their 
Authorization application. NMFS has not modified or supplemented the 
plan based on comments or new information received from the public 
during the public comment period. Any monitoring requirement we 
prescribe should improve our understanding of one or more of the 
following:

[[Page 10756]]

     Occurrence of marine mammal species or stocks in action 
area (e.g., presence, abundance, distribution, density);
     Nature, scope, or context of likely marine mammal exposure 
to potential stressors/impacts (individual or cumulative, acute or 
chronic), through better understanding of: (1) Action or environment 
(e.g., source characterization, propagation, ambient noise); (2) 
Affected species (e.g., life history, dive patterns); (3) Co-occurrence 
of marine mammal species with the action; or (4) Biological or 
behavioral context of exposure (e.g., age, calving or feeding areas);
     Individual responses to acute stressors, or impacts of 
chronic exposures (behavioral or physiological);
     How anticipated responses to stressors impact either: (1) 
Long-term fitness and survival of an individual; or (2) Population, 
species, or stock;
     Effects on marine mammal habitat and resultant impacts to 
marine mammals; and
     Mitigation and monitoring effectiveness.
    The Authorization for Maritime WSEP operations will require the 
following measures:
    (1) Eglin AFB will track the use of the EGTTR for test firing 
missions and protected species observations through the use of mission 
reporting forms;
    (2) Eglin AFB will submit a summary report of marine mammal 
observations and Maritime WSEP activities to the NMFS Southeast 
Regional Office (SERO) and the Office of Protected Resources 90 days 
after expiration of the current Authorization. This report must include 
the following information: (i) Date and time of each Maritime WSEP 
exercise; (ii) a complete description of the pre-exercise and post-
exercise activities related to mitigating and monitoring the effects of 
Maritime WSEP exercises on marine mammal populations; and (iii) results 
of the Maritime WSEP exercise monitoring, including number of marine 
mammals (by species) that may have been harassed due to presence within 
the activity zone;
    (3) Eglin AFB will monitor for marine mammals in the action area. 
If Eglin AFB personnel observe or detect any dead or injured marine 
mammals prior to testing, or detects any injured or dead marine mammals 
during live fire exercises, Eglin AFB must cease operations and submit 
a report to NMFS within 24 hours; and
    (4) Eglin AFB must immediately report any unauthorized takes of 
marine mammals (i.e., serious injury or mortality) to NMFS and to the 
respective Southeast Region stranding network representative. Eglin AFB 
must cease operations and submit a report to NMFS within 24 hours.

Monitoring Results From Previously Authorized Activities

    Eglin AFB complied with the mitigation and monitoring required 
under the previous Authorization for 2016 Maritime WSEP activities. 
Marine mammal monitoring occurred before, during, and after each 
Maritime WSEP mission. During the course of these activities, Eglin 
AFB's monitoring reports showed that they did not exceed the take 
levels authorized. In accordance with the 2015 Authorization, Eglin AFB 
submitted a monitoring report (available at: www.nmfs.noaa.gov/pr/permits/incidental/military.htm).
    Under the 2016 Authorization, Eglin AFB anticipated conducting 
Maritime WSEP training missions over approximately two to three weeks, 
but actually conducted a total of five mission days (February 11 and 
March 14-17) associated with live ordnance delivery. Due to weather 
conditions and high sea states, no live missions were conducted 
February 8-10. Munitions that were actually dropped accounted for only 
approximately 41 percent of what was authorized in the 2016 
Authorization.
    During the February 2016 mission, Eglin AFB released one AGM-65 
Maverick. The AGM-65 Maverick is a penetrating blast-fragment warhead 
that detonates at the surface and has 86 lb NEW. Eglin AFB conducted 
the required monitoring for marine mammals or indicators of marine 
mammals (e.g., flocks of birds, baitfish schools, or large fish 
schools) before, during, and after each mission and observed a mixture 
of six bottlenose and spotted dolphins approximately seven miles 
outside of the largest ZOI, so no action was required. No protected 
species were observed within the ZOI during pre-mission surveys, 
mission activities, or during post-mission surveys. Therefore, the 
mission resulted in no acoustic impacts to marine mammals.
    During the March 2016 live fire missions, Eglin AFB expended two 
AGM-65 Mavericks and twelve AGM-114 Hellfire missiles. The NEW of the 
munitions that detonated at the water surface or up to 3 m (10 ft) 
below the surface are 86 lb for the AGM-65 Maverick missiles and 13 lb 
for the AGM-114 Hellfire missiles. Eglin AFB conducted the required 
monitoring for marine mammals or indicators of marine mammals (e.g., 
flocks of birds, baitfish schools, or large fish schools) before, 
during, and after each mission and observed two species of marine 
mammals: The common bottlenose dolphin and Atlantic spotted dolphin; 
one sea turtle; and two flocks of approximately 10-20 birds on two 
separate occasions (upon investigation there was no evidence of 
protected species associated with either flock of birds). Eglin AFB 
confirmed that all protected species observed were outside of the ZOI 
at the conclusion of each pre-mission survey.
    After each mission, Eglin AFB re-entered the ZOI to begin post-
mission surveys for marine mammals and debris clean-up operations. 
Eglin AFB personnel did not observe reactions indicative of disturbance 
during the pre-mission surveys and did not observe any marine mammals 
during the post-mission surveys. In summary, Eglin AFB reports that no 
observable instances of take of marine mammals occurred incidental to 
the Maritime WSEP training activities under the 2016 Authorization.

Estimated Numbers of Marine Mammals Taken by Harassment

    This section includes an estimate of the number of incidental 
``takes'' proposed for authorization pursuant to this Authorization, 
which will inform both NMFS negligible impact determination. Harassment 
is the means of take expected to result from these activities, and the 
definition of harassment as it applies to a ``military readiness 
activity'' is: (i) Any act that injures or has the significant 
potential to injure a marine mammal or marine mammal stock in the wild 
(Level A Harassment); or (ii) any act that disturbs or is likely to 
disturb a marine mammal or marine mammal stock in the wild by causing 
disruption of natural behavioral patterns, including, but not limited 
to, migration, surfacing, nursing, breeding, feeding, or sheltering, to 
a point where such behavioral patterns are abandoned or significantly 
altered (Level B Harassment).
    NMFS' analysis identified the physiological responses and 
behavioral responses that could potentially result from exposure to 
underwater explosive detonations. In this section, we will relate the 
potential effects to marine mammals from underwater detonation of 
explosives to the MMPA regulatory definitions of Level A and Level B 
harassment. This section will also quantify the effects that might 
occur from the military readiness activities in W-151.
    At NMFS' recommendation, Eglin AFB updated the thresholds used for 
onset of TTS (Level B Harassment) and onset of PTS (Level A Harassment) 
to be

[[Page 10757]]

consistent with the thresholds outlined in NMFS' August 2016 
``Technical Guidance for Assessing the Effects of Anthropogenic Sound 
on Marine Mammal Hearing'' (NMFS 2016). NMFS believes that the 
thresholds outlined in the new Technical Guidance represent the best 
available science. The report is available on the internet at: 
www.nmfs.noaa.gov/pr/acoustics/Acoustic%20Guidance%20Files/opr-55_acoustic_guidance_tech_memo.pdf.

Level B Harassment

    Of the potential effects described earlier in this document, the 
following are the types of effects that fall into the Level B 
harassment category:
Behavioral Harassment
    Behavioral disturbance that rises to the level described in the 
above definition, when resulting from exposures to non-impulsive or 
impulsive sound, is Level B harassment. Some of the lower level 
physiological stress responses discussed earlier will also likely co-
occur with the predicted harassments, although these responses are more 
difficult to detect and fewer data exist relating these responses to 
specific received levels of sound. When predicting Level B harassment 
based on estimated behavioral responses, we are aware that those takes 
may have a stress-related physiological component.
Temporary Threshold Shift
    As discussed previously, TTS can affect how an animal behaves in 
response to the environment, including conspecifics, predators, and 
prey. NMFS classifies TTS (when resulting from exposure to explosives 
and other impulsive sources) as Level B harassment, not Level A 
harassment (injury).

Level A Harassment

    Of the potential effects that were described earlier, the following 
are the types of effects that fall into the Level A Harassment 
category:
Permanent Threshold Shift
    PTS (resulting either from exposure to explosive detonations) is 
irreversible and NMFS considers this to be an injury.

Acoustic Thresholds

    Table 6 outlines the acoustic thresholds for mid-frequency 
cetaceans used by NMFS for this Authorization when addressing noise 
impacts from explosives. Both common bottlenose dolphins and Atlantic 
spotted dolphins are considered mid-frequency cetaceans.

                        Table 6--Impulsive Sound Explosive Thresholds Used by Eglin AFB in Its Current Acoustics Impacts Modeling
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                            Level B harassment                          Level A harassment
                                       ---------------------------------------------------------------------------------------
                 Group                                                                 Gastro-                                         Mortality
                                         Behavioral        TTS           PTS      intestinal tract             Lung
--------------------------------------------------------------------------------------------------------------------------------------------------------
Mid-frequency Cetaceans...............    165 dB SEL    170 dB SEL    185 dB SEL        237 dB SPL  39.1 M1/3 (1+[DRm/         91.4 M1/3 (1+DRm/
                                                                                                     10.081])1/2 Pa-sec.        10.081])1/2 Pa-sec.
                                                                                                    Where: M = mass of the     Where: M = mass of the
                                                                                                     animals in kg.             animals in kg.
                                                                                                    DRm = depth of the         DRm = depth of the
                                                                                                     receiver (animal) in       receiver (animal) in
                                                                                                     meters.                    meters.
--------------------------------------------------------------------------------------------------------------------------------------------------------
TTS = temporary threshold shift; PTS = permanent threshold shift; dB = decibels; SEL = sound exposure level; SPL = sound pressure level.

    Table 7 provides the estimated maximum range or radius, from the 
detonation point to the various thresholds described in Tables 4-6 
(Note: For PTS and TTS dual metrics, the more conservative metric was 
used).

                                   Table 7--Distances (m) to Harassment Thresholds From Eglin AFB's Explosive Ordnance
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                               Mortality                     Level A harassment                              Level B harassment
                                             -----------------------------------------------------------------------------------------------------------
                                                           Slight lung    GI tract                PTS                         TTS             Behavioral
                                                              injury       injury   --------------------------------------------------------------------
            Mission-day  category               Modified  --------------------------
                                                Goertner     Modified
                                                Model 1      Goertner    237 dB SPL   185 dB SEL  230 dB Peak SPL   170 dB SEL   224 dB SPL   165 dB SEL
                                                             Model 2
--------------------------------------------------------------------------------------------------------------------------------------------------------
Bottlenose dolphin:
    A.......................................          193          534          180          945              705        4,666        1,302        7,479
    B.......................................          110          180          156          248              180        2,225          180        3,959
    C.......................................           37           73           83          286              169        1,128          180        1,863
Atlantic spotted dolphin:
    A.......................................          216          595          180          945              705        4,666        1,302        7,479
    B.......................................          136          180          156          248              180        2,225          180        3,959
    C.......................................           47           84           83          286              169        1,128          180        1,863
--------------------------------------------------------------------------------------------------------------------------------------------------------
dB = decibels; GI = gastrointestinal; SEP = sound exposure level; SPL = sound pressure level; PTS = permanent threshold shift; TTS = temporary threshold
  shift.

    The ranges presented above were used to calculate the ZOI for each 
criterion/threshold. To eliminate double counting of takes, impact 
areas from higher impact categories (e.g., PTS) were subtracted from 
areas associated with lower impact categories (e.g., TTS). The 
estimated number of marine mammals potentially exposed to the various

[[Page 10758]]

impact thresholds was calculated with a two-dimensional approach using 
the product of the adjusted impact area, animal density, and annual 
number of events for each mission-day category. A take is considered to 
occur for sound exposure level (SEL) metrics if the received level is 
equal to or above the associated threshold within the appropriate 
frequency band of the sound received, adjusted for the appropriate 
weighting function value of that frequency band. Similarly, a take 
would occur for impulse and peak SPL metrics if the received level is 
equal to or above the associated threshold.

Density Estimation

    Density estimates for bottlenose dolphin and spotted dolphin were 
obtained from Duke University Marine Geospatial Ecology Lab Reports 
(Roberts et al., 2016). Raster data from Duke University were imported 
into ArcGIS and overlaid onto the Maritime WSEP mission area. Density 
values were provided in 100 km\2\ boxes. A 30-km by 30-km (900 km\2\) 
area centered on the Maritime WSEP mission location was selected, which 
consisted of nine 100-km\2\ blocks. Density values from those blocks 
were averaged and converted to number of animals per square kilometer 
to obtain average annual density estimates for the common bottlenose 
and Atlantic spotted dolphins used in this analysis (see Table 8 for 
the resultant densities for these species).

    Table 8--Marine Mammal Density Estimates Within Eglin AFB's EGTTR
------------------------------------------------------------------------
                                                             Density
                        Species                          (animals/km\2\)
------------------------------------------------------------------------
Bottlenose dolphin.....................................            0.433
Atlantic spotted dolphin...............................            0.148
------------------------------------------------------------------------

Take Estimation

    Table 9 indicates the modeled potential for lethality, injury, and 
non-injurious harassment (including behavioral harassment) to marine 
mammals in the absence of mitigation measures. Eglin AFB and NMFS 
estimate that approximately three marine mammals could be exposed to 
injurious Level A harassment noise levels (187 dB SEL) and 
approximately 326 animals could be exposed to Level B harassment (TTS 
and behavioral harassment) noise levels in the absence of mitigation 
measures.

           Table 9--Modeled Number of Marine Mammals Potentially Affected by Maritime WSEP Operations
----------------------------------------------------------------------------------------------------------------
                                                                      Level A
                                                                    harassment        Level B         Level B
                     Species                         Mortality       (PTS and       harassment      harassment
                                                                    slight lung        (TTS)       (behavioral)
                                                                      injury)
----------------------------------------------------------------------------------------------------------------
Bottlenose dolphin..............................               0               2              87             157
Atlantic spotted dolphin........................               0               1              29              53
                                                 ---------------------------------------------------------------
    Total.......................................               0               3             116             210
----------------------------------------------------------------------------------------------------------------

    Based on the mortality exposure estimates calculated by the 
acoustic model and the anticipated effectiveness of mitigation 
measures, zero marine mammals are expected to be affected by pressure 
levels associated with mortality or serious injury. Zero marine mammals 
are expected to be exposed to pressure levels associated with 
gastrointestinal tract injury.
    NMFS generally considers PTS to fall under the injury category 
(Level A Harassment). An animal would need to stay very close to the 
sound source for an extended amount of time to incur a serious degree 
of PTS, which could increase the probability of mortality. In this 
case, it would be highly unlikely for this scenario to unfold given the 
nature of any anticipated acoustic exposures that could potentially 
result from a mobile marine mammal that NMFS generally expects to 
exhibit avoidance behavior to loud sounds within the EGTTR. NMFS 
concludes that possibility of minor PTS in the form of slight upward 
shift of hearing threshold at certain frequency bands by a few 
individuals of marine mammals is low, but not unlikely. The majority of 
the incidental `takes' resulting from Eglin AFB's WSEP activities will 
consist of Level B harassment, such as TTS and behavioral responses.

Negligible Impact Analysis Determinations

    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'' (i.e., population-level effects). 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, we consider other factors, such as 
the likely nature of any responses (e.g., intensity, duration), the 
context of any responses (e.g., critical reproductive time or location, 
migration), as well as the number and nature of estimated Level A 
harassment takes, the number of estimated mortalities, and effects on 
habitat. Consistent with the 1989 preamble for NMFS' implementing 
regulations (54 FR 40338; September 29, 1989), the impacts from other 
past and ongoing anthropogenic activities are incorporated into these 
analyses via their impacts on the environmental baseline (e.g., as 
reflected in the regulatory status of the species, populations size, 
growth rate where known, ongoing sources of human-caused mortality, or 
ambient noise levels).
    To avoid repetition, the discussion below applies to each of the 
species for which we authorize incidental take for Eglin AFB's 
activities, given that expected impacts are expected to be the same for 
both species.
    In making a negligible impact determination, we consider:
     The number of anticipated injuries, serious injuries, or 
mortalities;
     The number, nature, and intensity, and duration of Level B 
harassment;
     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);

[[Page 10759]]

     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);
     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, Eglin AFB's specified activities are not likely to 
cause long-term behavioral disturbance, serious injury, or death.
    The takes from Level B harassment will be due to potential 
behavioral disturbance and TTS. The takes from Level A harassment will 
be due to some, likely lesser, degree of PTS and slight lung injury. 
Activities will only occur over a timeframe of two to three weeks 
beginning in February 2017, with one or two missions occurring per day. 
It is possible that some individuals may be taken more than once if 
those individuals are located in the exercise area on two different 
days when exercises are occurring.
    Noise-induced threshold shifts (TS, which includes PTS) are defined 
as increases in the threshold of audibility (i.e., the sound has to be 
louder to be detected) of the ear at a certain frequency or range of 
frequencies (ANSI 1995; Yost 2000). Several important factors relate to 
the magnitude of TS, such as level, duration, spectral content 
(frequency range), and temporal pattern (continuous, intermittent) of 
exposure (Yost 2000; Henderson et al., 2008). TS occurs in terms of 
frequency range (Hz or kHz), hearing threshold level (dB), or both 
frequency and hearing threshold level (CDC 2004).
    In addition, there are different degrees of PTS ranging from 
slight/mild to moderate and from severe to profound (Clark 1981). 
Profound PTS or the complete loss of the ability to hear in one or both 
ears is commonly referred to as deafness (CDC 2004; WHO 2006). High-
frequency PTS, presumably as a normal process of aging that occurs in 
humans and other terrestrial mammals, has also been demonstrated in 
captive cetaceans (Ridgway and Carder 1997; Yuen et al., 2005; Finneran 
et al., 2005; Houser and Finneran 2006; Finneran et al., 2007; Schlundt 
et al., 2011) and in stranded individuals (Mann et al., 2010).
    In terms of what is analyzed for the potential PTS (Level A 
harassment) in marine mammals as a result of Eglin AFB's Maritime WSEP 
operations, if it occurs, NMFS has determined that the levels will be 
slight/mild because most cetaceans would be expected to show relatively 
high levels of avoidance. Further, it is uncommon to sight marine 
mammals within the target area, especially for prolonged durations. 
Results from monitoring programs associated other Eglin AFB activities 
and for Eglin AFB's 2016 Maritime WSEP activities have shown the 
absence of marine mammals within the EGTTR during and after maritime 
operations. Avoidance varies among individuals and depends on their 
activities or reasons for being in the area.
    NMFS' predicted estimates for Level A harassment take are likely 
overestimates of the likely injury that will occur. NMFS expects that 
successful implementation of the required vessel-based and video-based 
mitigation measures will avoid Level A take in some instances. Also, 
NMFS expects that some individuals will avoid the source at levels 
expected to result in injury. Nonetheless, although NMFS expects that 
Level A harassment is unlikely to occur at the numbers authorized, 
because it is difficult to quantify the degree to which the mitigation 
and avoidance will reduce the number of animals that might incur PTS, 
we are authorizing the modeled number of Level A takes (three), which 
does not take mitigation or avoidance into consideration. However, we 
anticipate that any PTS incurred because of mitigation and the likely 
short duration of exposures, will be in the form of only a small degree 
of PTS and not total deafness.
    While animals may be impacted in the immediate vicinity of the 
activity, because of the short duration of the actual individual 
explosions themselves (versus continual sound source operation) 
combined with the short duration of the Maritime WSEP operations, NMFS 
has determined that there will not be a substantial impact on marine 
mammals or on the normal functioning of the nearshore or offshore Gulf 
of Mexico ecosystems. We do not expect that the activity will impact 
rates of recruitment or survival of marine mammals since, among other 
factors listed below, we do not expect mortality (which would remove 
individuals from the population) or serious injury to occur. In 
addition, the activity will not occur in areas (and/or times) of 
significance for the marine mammal populations potentially affected by 
the exercises (e.g., feeding, resting, or reproductive areas), and the 
activities will only occur in a small part of their overall range, so 
the impact of any potential temporary displacement will be negligible 
and animals are expected to return to the area after the cessation of 
activities. Although the activity could result in Level A (PTS or 
slight lung injury, not gastrointestinal tract injury) and Level B 
(behavioral disturbance and TTS of lesser degree and shorter duration) 
harassment of marine mammals, the level of harassment is not 
anticipated to impact rates of recruitment or survival of marine 
mammals because the number of exposed animals is expected to be low due 
to the short-term (i.e., four hours a day or less) and site-specific 
nature of the activity. We do not anticipate that the effects will be 
detrimental to rates of recruitment and survival because we do not 
expect serious extended behavioral responses that would result in 
energetic effects at the level to impact fitness.
    Moreover, the mitigation and monitoring measures for the 
Authorization (described earlier in this document) are expected to 
further minimize the potential for harassment. The protected species 
surveys will require Eglin AFB to search the area for marine mammals, 
and if any are found in the live fire area, then the exercise will be 
suspended until the animal(s) has left the area. Moreover, marine 
species observers located in the Eglin control tower will monitor the 
high-definition video feed from cameras located on the instrument barge 
anchored on-site for the presence of protected species. Furthermore, 
Maritime WSEP missions will be delayed or rescheduled if the sea state 
is greater than a 4 on the Beaufort Scale at the time of the test. In 
addition, Maritime WSEP missions will occur no earlier than two hours 
after sunrise and no later than two hours prior to sunset to ensure 
adequate daylight for pre- and post-mission monitoring.
    Based on the analysis contained herein 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 Eglin AFB's Maritime WSEP operations will 
result in the incidental take of marine mammals, by Level A and Level B 
harassment, but that the taking from the Maritime WSEP exercises will 
not have an adverse effect on annual rates of recruitment or survival, 
and therefore will have a negligible impact on 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. Therefore, NMFS has determined that the total taking of

[[Page 10760]]

affected species or stocks will not have an unmitigable adverse impact 
on the availability of such species or stocks for taking for 
subsistence purposes.

Endangered Species Act (ESA)

    Due to the location of the activity and past experience with 
similar authorizations for these activities, no ESA-listed marine 
mammal species are likely to be affected. Therefore, NMFS has 
determined that this Authorization will have no effect on ESA-listed 
species and has determined that a section 7 consultation under the ESA 
is not required for the issuance of an MMPA Authorization to Eglin AFB.

National Environmental Policy Act (NEPA)

    In 2015, Eglin AFB provided NMFS with an EA titled Maritime Weapon 
Systems Evaluation Program (WSEP) Operational Testing in the Eglin Gulf 
Testing and Training Range (EGTTR), Florida. The EA analyzed the 
direct, indirect, and cumulative environmental impacts of the specified 
activities on marine mammals. NMFS, after review and evaluation of the 
Eglin AFB EA for consistency with the regulations published by the 
Council of Environmental Quality (CEQ) and NOAA Administrative Order 
216-6, Environmental Review Procedures for Implementing the National 
Environmental Policy Act, adopted the EA. After considering the EA, the 
information in the 2014 Authorization application, and the Federal 
Register notice, as well as public comments, NMFS' issuance of the 2015 
Authorization and determination that the activity was not likely to 
result in significant impacts on the human environment, NMFS adopted 
Eglin AFB's EA under 40 CFR 1506.3; and issued a FONSI statement on 
issuance of an Authorization under section 101(a)(5) of the MMPA.
    In accordance with NOAA Administrative Order 216-6 (Environmental 
Review Procedures for Implementing the National Environmental Policy 
Act, May 20, 1999), NMFS will again review the information contained in 
Eglin AFB's EA and determine whether the EA accurately and completely 
describes the preferred action alternative and the potential impacts on 
marine mammals. Based on this review and analysis, NMFS has reaffirmed 
2015 FONSI statement on issuance of an annual authorization under 
section 101(a)(5) of the MMPA.

Authorization

    As a result of these determinations, NMFS has issued an Incidental 
Harassment Authorization to Eglin AFB for conducting Maritime WSEP 
activities, for a period of one year from the date of issuance, 
provided the previously mentioned mitigation, monitoring, and reporting 
requirements are incorporated.

    Dated: February 9, 2017.
Donna S. Wieting,
Director, Office of Protected Resources, National Marine Fisheries 
Service.
[FR Doc. 2017-02970 Filed 2-14-17; 8:45 am]
BILLING CODE 3510-22-P