[Federal Register Volume 84, Number 69 (Wednesday, April 10, 2019)]
[Rules and Regulations]
[Pages 14314-14335]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-06918]



[[Page 14314]]

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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Part 217

[Docket No. 180816767-9270-02]
RIN 0648-BI44


Taking and Importing Marine Mammals; Taking Marine Mammals 
Incidental to U.S. Air Force Launches and Operations at Vandenberg Air 
Force Base, California

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

ACTION: Final rule; issuance of Letters of Authorization (LOA).

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SUMMARY: NMFS, upon request of the U.S. Air Force (USAF), hereby issues 
regulations to govern the unintentional taking of marine mammals 
incidental to launching space launch vehicles, intercontinental 
ballistic and small missiles, and aircraft operations at Vandenberg Air 
Force Base (VAFB), over the course of five years. These regulations, 
which allow for the issuance of Letters of Authorization (LOA) for the 
incidental take of marine mammals during the described activities and 
specified timeframes, prescribe the permissible methods of taking and 
other means of effecting the least practicable adverse impact on marine 
mammal species or stocks and their habitat, as well as requirements 
pertaining to the monitoring and reporting of such taking. In 
accordance with the Marine Mammal Protection Act (MMPA), as amended, 
and implementing regulations, notification is hereby additionally given 
that a five-year LOA has been issued to USAF to take marine mammals 
incidental to rocket and missile launch and recovery activities and 
aircraft operations.

DATES: Effective from April 10, 2019, until April 10, 2024.

FOR FURTHER INFORMATION CONTACT: Jordan Carduner, Office of Protected 
Resources, NMFS; phone: (301) 427-8401.

SUPPLEMENTARY INFORMATION:

Availability

    A copy of the USAF's application and any supporting documents, as 
well as a list of the references cited in this document, may be 
obtained online at: www.fisheries.noaa.gov/permit/incidental-take-authorizations-under-marine-mammal-protection-act. In case of problems 
accessing these documents, please call the contact listed above (see 
FOR FURTHER INFORMATION CONTACT).

Purpose and Need for Regulatory Action

    These regulations establish a framework under the authority of the 
MMPA (16 U.S.C. 1361 et seq.) to allow for the authorization of take of 
marine mammals incidental to rocket and missile launch activities and 
aircraft operations at VAFB.
    We received an application from the USAF requesting five-year 
regulations and authorization to take marine mammals. Take is expected 
to occur by Level B harassment incidental to launch noise and sonic 
booms. Please see ``Background'' below for definitions of harassment.

Legal Authority for the Action

    Section 101(a)(5)(A) of the MMPA (16 U.S.C. 1371(a)(5)(A)) directs 
the Secretary of Commerce to allow, upon request, the incidental, but 
not intentional taking of small numbers of marine mammals by U.S. 
citizens who engage in a specified activity (other than commercial 
fishing) within a specified geographical region for up to five years 
if, after notice and public comment, the agency makes certain findings 
and issues regulations that set forth permissible methods of taking 
pursuant to that activity and other means of effecting the ``least 
practicable adverse impact'' on the affected species or stocks and 
their habitat (see the discussion below in the Mitigation section), as 
well as monitoring and reporting requirements. Section 101(a)(5)(A) of 
the MMPA and the implementing regulations at 50 CFR part 216, subpart I 
provide the legal basis for issuing this rule containing five-year 
regulations, and for any subsequent LOAs. As directed by this legal 
authority, the regulations contain mitigation, monitoring, and 
reporting requirements.

Summary of Major Provisions Within the Rule

    Following is a summary of the major provisions of the regulations 
regarding USAF rocket and missile launch activities and aircraft 
operations. These measures include:
     Required acoustic monitoring to measure the sound levels 
associated with the planned activities.
     Required biological monitoring to record the presence of 
marine mammals during the planned activities and to document responses 
to the planned activities.
     Mitigation measures to minimize harassment of the most 
sensitive marine mammal species.

Background

    Sections 101(a)(5)(A) and (D) of the 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 by U.S. citizens who engage in a specified activity (other than 
commercial fishing) within a specified geographical region if certain 
findings are made and either regulations are issued or, if the taking 
is limited to harassment, a notice of a proposed authorization is 
provided to the public for review.
    An authorization for incidental takings 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 takings 
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.
    The MMPA states that the term ``take'' means to harass, hunt, 
capture, kill or attempt to harass, hunt, capture, or kill any marine 
mammal.
    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 August 10, 2018, NMFS received an application from the USAF, 
30th Space Wing, requesting authorization for the take of six species 
of pinnipeds incidental to rocket launch and recovery, missile launch, 
and aircraft operations from VAFB launch complexes. On September 13, 
2018 (83 FR 46483), we published a notice of receipt of the USAF's 
application in the Federal Register, requesting comments

[[Page 14315]]

and information related to the request for thirty days. We received 
comments from the Marine Mammal Commission and from the general public. 
On December 4, 2018, NMFS received a supplement to the application from 
USAF that included a request to also include activities associated with 
the recovery of Space Exploration Technologies (SpaceX) Falcon 9 First 
Stage rockets. On January 24, 2019 (50 FR 217) NMFS published a notice 
of proposed rule in the Federal Register, with a thirty day comment 
period, requesting public comments and information related to the 
request. We received comments from the Marine Mammal Commission and 
from the general public. Comments received in response to the September 
13 notice of receipt and the January 24 proposed rule were considered 
in development of these final regulations to govern the authorization 
of take incidental to the activities encompassed in the final 
application. The comments are available online at: https://www.fisheries.noaa.gov/permit/incidental-take-authorizations-under-marine-mammal-protection-act.
    The take of marine mammals incidental to activities related to the 
launching of space launch vehicles and missiles, and aircraft 
operations at VAFB, have been previously authorized by NMFS via Letters 
of Authorization (LOA) issued under incidental take regulations, which 
were effective from March 26, 2014 through March 26, 2019 (79 FR 
10016). We note that while the previous rule and LOA expired on March 
26, 2019, no activities that are expected to result in the incidental 
take of marine mammals, including the launching of rockets and missiles 
from VAFB, are planned to occur from March 26, 2019 until these 
regulations are effective and a new LOA is issued.
    To date, we have issued nine LOAs to USAF for these activities. 
Launches of SpaceX's Falcon 9 rocket were included in the previous 
five-year rule (79 FR 10016) and LOA issued to USAF for activities at 
VAFB. At the time those regulations and LOA were issued, the recovery 
of the Falcon 9 First Stage (including in-air boost-back and landing) 
was not yet part of SpaceX's action, therefore recovery of the Falcon 9 
First Stage was not included in that rule and LOA. In 2016, when SpaceX 
began recovery operations involving the Falcon 9 First Stage, SpaceX 
requested authorization for the take of marine mammals incidental to 
those recovery activities. NMFS issued incidental harassment 
authorizations (IHA) pursuant to section 101(a)(5)(d) of the MMPA in 
2016 (81 FR 34984) and 2017 (82 FR 60954) to SpaceX, which authorized 
the take of marine mammals incidental to Falcon 9 First Stage recovery 
activities. The USAF and SpaceX requested that Falcon 9 First Stage 
recovery activities as well as launches of the Falcon 9 First Stage be 
included in these regulations. NMFS has determined it is more efficient 
to include both Falcon 9 First Stage recovery activities and launches 
in the same regulations, and that this is allowable as Falcon 9 First 
Stage recovery activities fall within the scope of the action as all 
activities resulting in take of marine mammals originate at VAFB. 
Therefore, both recoveries and launches of the Falcon 9 First Stage 
have been included in these regulations.

Authorization

    This action also serves as a notice of issuance of a five-year LOA 
issued to USAF authorizing the take of marine mammals, by Level B 
harassment, incidental to rocket launch and recovery activities, 
missile launch activities and aircraft operations. The level and type 
of take authorized by the LOA is outlined in this preamble to the final 
rule. Take by mortality, serious injury or Level A harassment is not 
anticipated or authorized.

Description of the Specified Activity

Overview

    VAFB contains seven active missile launch facilities and six active 
space launch facilities and supports launch activities for the USAF, 
Department of Defense, National Aeronautics and Space Administration 
(NASA), and commercial entities. It is the primary west coast launch 
facility for placing commercial, government and military satellites 
into polar orbit on unmanned launch vehicles, and for the testing and 
evaluation of intercontinental ballistic missiles (ICBMs) and sub-
orbital target and interceptor missiles. In addition to the launching 
of rockets, certain rocket components are returned to VAFB for reuse, 
using in-air ``boost-back'' maneuvers and landings at the base. In 
addition to space vehicle and missile launch activities at VAFB, 
occasional helicopter and aircraft operations occur at VAFB that 
involve search-and-rescue, delivery of space vehicle components, launch 
mission support, security reconnaissance, and training flights. The use 
of unmanned aerial systems (UAS, also known as ``drones'') also occurs 
at VAFB.
    The USAF anticipates that no more than 110 rocket launches and 15 
missile launches would occur in any year during the period of 
authorized activities (Table 1). This number of launches would 
represent an increase compared to historical launch activity at VAFB, 
but the USAF anticipates an increase in the number of launches in the 
near future and has based their estimate of planned rocket launches on 
this anticipated increase.
    There are six species of marine mammals that may be affected by the 
USAF's planned activities: California sea lion, Steller sea lion, 
northern fur seal, Guadalupe fur seal, northern elephant seal, and 
harbor seal. Hauled out pinnipeds may be disturbed by launch noises 
and/or sonic booms (overpressure of high-energy impulsive sound) from 
launch vehicles. Aircraft that are noisy and/or flying at low altitudes 
can also have the potential to disturb hauled out pinnipeds. Pinniped 
responses to these stimuli have been monitored at VAFB for the past 25 
years.

Dates and Duration

    The activities planned by USAF would occur for five years, from 
April, 2019 through April, 2024. Activities would occur year-round 
throughout the period of validity for the rule.

Specified Geographical Region

    All launches and aircraft activities would occur at VAFB. The areas 
potentially affected by noise from these activities includes VAFB and 
the Northern Channel Islands (NCI). VAFB occupies approximately 99,100 
acres of land and approximately 42 miles of coastline in central Santa 
Barbara County, California and is divided by the Santa Ynez River and 
State Highway 246 into two distinct parts: North Base and South Base. 
The NCI are considered part of the project area for the purposes of 
this rule, as rocket launches and landings at VAFB may result in sonic 
booms that impact the NCI. The NCI are four islands (San Miguel, Santa 
Rosa, Santa Cruz, and Anacapa) located approximately 31 mi (50 km) 
south of Point Conception, which is located on the mainland 
approximately 4 mi (6.5 km) south of the southern border of VAFB. The 
closest part of the NCI (Harris Point on San Miguel Island) is located 
more than 30 nautical miles south-southeast of the nearest launch 
facility.
    Rocket and missile launches occur from several locations on VAFB, 
on both North Base and South Base. Please refer to Figure 2 and Figure 
3 in the USAF's application for a depiction of launch locations on 
VAFB. Rocket landings by SpaceX would occur at the landing area 
referred to as Space Launch Complex (SLC) 4W, located on South Base of

[[Page 14316]]

VAFB, approximately 0.5 miles (mi) (0.8 kilometers (km)) inland from 
the Pacific Ocean. Although SLC-4W is the preferred landing location 
for the Falcon 9 First Stage, SpaceX has identified two contingency 
landing locations should it not be feasible to land the First Stage at 
SLC-4W. The first contingency landing location is on a barge located at 
least 27 nautical miles (nm) (50 km) offshore of VAFB. The second 
contingency landing location is on a barge within the Iridium Landing 
Area, an approximately 12,800 square mile (mi\2\) (33,153 square 
kilometers (km\2\)) area located approximately 122 nm (225 km) 
southwest of San Nicolas Island (SNI) and 133 nm (245 km) southwest of 
San Clemente Island. As any landings of the Falcon 9 First Stage at 
either contingency landing location would occur on barges operated by 
SpaceX, no search operation would be required following a landing at 
either of the contingency landing locations.

Detailed Description of Activities

    As described above, the USAF requested incidental take regulations 
for its operations at VAFB, which include rocket and missile launches, 
rocket recovery activities, and aircraft operations. VAFB is 
headquarters to the 30th Space Wing, the Air Force Space Command unit 
that operates VAFB and the Western Range. VAFB operates as a missile 
test base and aerospace center, supporting west coast space launch 
activities for the USAF, Department of Defense, NASA, and commercial 
contractors. VAFB is the main west coast launch facility for placing 
commercial, government, and military satellites into polar orbit on 
expendable (unmanned) launch vehicles, and for testing and evaluation 
of intercontinental ballistic missiles (ICBM) and sub-orbital target 
and interceptor missiles. In addition to space vehicle and missile 
launch activities at VAFB, aircraft operations are undertaken for 
purposes such as search-and-rescue, delivery of space vehicle 
components, launch mission support, security reconnaissance, and 
training flights. From VAFB, space vehicles are launched into polar 
orbits on azimuths from 147 to 201 degrees, with sub-orbital flights to 
281 degrees. Missile launches are directed west toward Kwajalein Atoll 
in the Pacific. This over-water sector, from 147 to 281 degrees, 
comprises the Western Range. Part of the Western Range encompasses the 
NCI.

Rocket Launch Activities

    There are currently six active facilities at VAFB used to launch 
satellites into polar orbit. One existing launch facility (TP-01), on 
north VAFB, has not been used in several years but is being 
reactivated. These facilities support launch programs for the Atlas V, 
Delta II, Delta IV, Falcon 9 and Minotaur rockets. Various booster and 
fuel packages can be configured to accommodate payloads of different 
sizes and weights.
    Table 1 shows estimates of the numbers and sizes of rocket launches 
from VAFB during calendar years 2019 through 2024. The numbers of 
anticipated launches shown in Table 1 are higher than the historical 
number of launches that have occurred from VAFB, and are considered 
conservative estimates; the actual number of launches that occurs in 
these years may be lower. However, the USAF anticipates an increase in 
the number of launches by non-commercial entities from VAFB over the 
next 5 years, and the numbers shown in Table 1 are based on this 
expectation. A large percentage of this anticipated increase will be 
comprised of smaller launch payloads and rockets than previously 
utilized at VAFB.

                           Table 1--Predicted Maximum Number of Rocket Launches in Calendar Years 2019 Through 2024 From VAFB
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                                                               2019            2020            2021            2022            2023           2024 *
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Small rockets...........................................               5              10              25              40              50              60
Medium rockets..........................................              10              15              20              20              30              30
Large rockets...........................................               5               5              10              15              20              20
                                                         -----------------------------------------------------------------------------------------------
    Total launches......................................              20              30              45              75             100             110
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* This rule is valid for only approximately 3 months in 2024 therefore not all launches in 2024 are covered under the rule.

    Rocket launches from VAFB have the potential to result in the 
harassment of pinnipeds that are hauled out of the water as a result of 
exposure to sound from launch noise (on VAFB) or as a result of 
exposure to sound from sonic booms. Based on several years of 
monitoring data, harassment of marine mammals is unlikely to occur when 
the intensity of a sonic boom is below 1.0 pounds per square foot (psf) 
(see further discussion in the Estimated Take section below). The 
likelihood of a sonic boom with a measured psf above 1.0 impacting 
marine mammals on the NCI is dependent on the size of the rocket (i.e., 
larger rockets are more likely to result in a sonic boom on the NCI 
than smaller rockets). The USAF estimated 33 percent of large rockets, 
25 percent of medium sized rockets, and 10 percent of small sized 
rockets would result in sonic booms on the NCI (USAF, 2018).
    Table 2 shows types of rockets that are anticipated for launch from 
VAFB over the next 5 years and the nearest locations of pinniped 
haulouts to the launch locations for those rockets. Other small rockets 
may also be launched from VAFB over the next 5 years but the exact 
specifications and launch locations for those rockets are unknown at 
this time.

     Table 2--Rocket Types Launched From VAFB and Nearest Locations of Pinniped Haulouts to Launch Locations
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                                                                                                    Distance to
                Rocket                       Launch facility          Nearest pinniped haulout     haulout (km)
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Current launch programs:
    Atlas V...........................  SLC-3E...................  North Rocky Point............             9.9
    Delta II \1\......................  SLC-2W...................  Purisima Point...............             2.3

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    Delta IV..........................  SLC-6....................  North Rocky Point............             2.3
    Falcon 9..........................  SLC-4E...................  North Rocky Point............             8.2
    Minotaur..........................  SLC-8....................  North Rocky Point............             1.6
    Minotaur/Taurus...................  LF-576E..................  North Spur Road..............             0.8
Future launch programs: \2\
    Vector............................  SLC-8....................  North Rocky Point............             1.6
    Firefly...........................  SLC-2....................  Purisima Point...............             2.3
    New Glenn.........................  TBD......................  TBD..........................             TBD
    Vulcan............................  SLC-3E...................  North Rocky Point............             9.9
    TBD...............................  TP-01....................  Purisima Point...............             7.6
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\1\ The final launch of the Delta II rocket occurred in September 2018. However a new corporate entity has
  proposed to reutilize SLC-2W.
\2\ All future launch program specifications should be considered notional and subject to change.

    As described above, launch facilities at VAFB support launch 
programs for rockets including the Atlas V, Delta II, Delta IV, Falcon 
9, Minotaur, and Taurus rockets. A detailed description of these 
vehicle types was provided in our Notice of Proposed Rulemaking (84 FR 
341; January 24, 2019) and thus are not repeated here. No changes have 
been made to the space vehicle types described therein.

SpaceX Falcon 9 First Stage Recovery Activities

    The Falcon 9 is a two-stage rocket designed and manufactured by 
SpaceX for transport of satellites into orbit. The First Stage of the 
Falcon 9 is designed to be reusable, while the second stage is not 
reusable. The action includes up to twelve Falcon 9 First Stage 
recoveries per year. The Falcon 9 First Stage is recovered via an in-
air boost-back maneuver and landings at VAFB or at a contingency 
landing location offshore. During the First Stage's descent, a sonic 
boom would be generated when the First Stage reaches a rate of travel 
that exceeds the speed of sound. Sonic booms would occur in proximity 
to the landing area with the highest sound levels generated from sonic 
booms generally focused in the direction of the landing area, and may 
be heard during or briefly after the boost-back and landing, depending 
on the location of the receiver. The boost-back and landing of the 
Falcon 9 First Stage may also result in a sonic boom impacting the NCI 
or VAFB (USAF, 2018). A detailed description of the Falcon 9 First 
Stage and the related boost-back and landing procedure was provided in 
our Notice of Proposed Rulemaking (84 FR 341; January 24, 2019) and 
thus is not repeated here. No changes have been made to the Falcon 9 
First Stage or its boost-back and landing procedure described therein. 
These sonic booms may result in the take of marine mammals. This is 
discussed further in the Estimated Take section below. The Falcon 9 
First Stage is the only rocket type that may be recovered via boost-
back and landing as part of the planned activities.

Missile Launch Activities

    A variety of small missiles are launched from various facilities on 
north VAFB, including Minuteman III, an ICBM which is launched from 
underground silos. In addition, several types of interceptor and target 
vehicles are launched for the Missile Defense Agency (MDA). The MDA 
develops various systems and elements, including the Ballistic Missile 
Defense System (BMDS). USAF anticipates no more than 15 missile 
launches would occur in any year between 2019 through 2024. Take of 
marine mammals at VAFB from rocket launches may occur as a result of 
the USAF's activities. The trajectories of all missile launches are 
nearly due westward; thus, they do not cause sonic boom impacts on the 
NCI. Therefore take of marine mammals on the NCI from missile launches 
is not an expected outcome of the specified activities. A detailed 
description of missile launch activities was provided in our Notice of 
Proposed Rulemaking (84 FR 341; January 24, 2019) and is not repeated 
here. No changes have been made to missile launch activities described 
therein.

Aircraft Operations

    The VAFB airfield, located on north VAFB, supports various aircraft 
operations. Aircraft operations include tower operations, such as take-
offs and landings (training operations), and range operations such as 
overflights and flight tests. Over the past five years, an average of 
slightly more than 600 flights has occurred each year. Fixed-wing 
aircraft use VAFB for various purposes, including delivering rocket or 
missile components, high-altitude launches of space vehicles, and 
emergency landings. Helicopter operations also occur at VAFB, but the 
number of helicopter operations at VAFB has decreased considerably 
since 2008 when the deactivation of the VAFB helicopter squadron 
occurred. Take of hauled out pinnipeds from fixed-wing and helicopter 
operations are not anticipated as flight paths are required to avoid 
haulouts when possible and pinnipeds that haulout at VAFB are 
acclimatized to aircraft and helicopter overflights. A detailed 
description of fixed-wing and helicopter activities was provided in our 
Notice of Proposed Rulemaking (84 FR 341; January 24, 2019) and is not 
repeated here. No changes have been made to fixed-wing and helicopter 
activities described therein.
    UAS operations at VAFB represent a relatively new activity but may 
increase over the next five years. UAS operations may include either 
rotary or fixed wing aircraft. These are typically divided into as many 
as six classes which graduate in size from class 0 (which are often 
smaller than 5 inches in diameter and always weigh less than one pound) 
to Class 5 (which can be as large as a small piloted aircraft) (Table 
4). UAS classes 0, 1, 2 and 3 can be used in almost any location, while 
classes 4 and 5 typically require a runway and, for that reason, would 
only be operated from the VAFB airfield.

[[Page 14318]]



                                   Table 4--Classes of Unmanned Aerial Systems
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                          Weight                                            Typical operating   Typical airspeed
        Class            (pounds)     Minimum dimension  Maximum dimension   altitude (feet)        (knots)
----------------------------------------------------------------------------------------------------------------
0...................              <1  ``large insect''.  50 cm............  any..............  any.
1...................            1-20  >50 cm...........  2 meters.........  <1,200...........  <100.
2...................           21-55  >2 m.............  10 meters........  <3,500...........  <250.
3...................          <1,320  >10 meters.......  n/a..............  <18,000..........  <250.
4...................          >1,320  >10 meters.......  n/a..............  <18,000..........  Any.
5...................          >1,320  >10 meters.......  n/a..............  <18,000..........  Any.
----------------------------------------------------------------------------------------------------------------

    Because UAS overflights represent a new activity at VAFB, UAS 
flight paths may be lower, and pinnipeds are not acclimatized to 
stimuli associated with UAS. Take of hauled out pinnipeds may occur as 
a result of visual or auditory stimuli from UAS in limited instances 
where the aircraft operate at low altitudes near pinniped haulouts. 
While harassment of hauled out pinnipeds from Class 0, 1 or 2 UAS is 
unlikely to occur at altitudes of 200 feet and above (Erbe et al., 
2017; Pomeroy et al., 2015; Sweeney et al., 2016; Sweeney and Gelatt, 
2017), information on pinniped responses to larger UASs is not widely 
available. However, based on the specifications of Class 3, 4 and 5 
UASs (Table 4), the likelihood of harassment resulting from overflights 
by UASs of that size would likely depend on several factors including 
noise signature and means of propulsion (i.e., rocket propelled or 
engine propelled). Except for take-off and landing actions, a minimum 
altitude of 300 feet will be maintained for Class 0-2 UAS over all 
known marine mammal haulouts when marine mammals are present. Class 3 
UAS will maintain a minimum altitude of 500 feet, except at take-off 
and landing. No Class 4 or 5 UAS will be flown below 1,000 feet over 
haulouts. The USAF anticipates that take of marine mammals from UAS 
operations would be minimal. However, to be conservative, the USAF has 
requested authorization for incidental take as a result of UAS 
operations.

Comments and Responses

    We published a Notice of Proposed Rulemaking in the Federal 
Register on January 24, 2019 (84 FR 341). During the 30-day comment 
period, we received a comment letter from the Marine Mammal Commission 
(Commission) and comments from the general public. The comments and our 
responses are described below. For full detail of the comments and 
recommendations, please see the comment letters, which are available 
online at: www.fisheries.noaa.gov/national/marine-mammal-protection/incidental-take-authorizations-military-readiness-activities.
    Comment: The Commission recommended that NMFS require the USAF to 
use time-lapse cameras and video-recording devices that have night-
vision capabilities to document responses of pinnipeds to nighttime 
launches and recoveries.
    Response: The USAF uses marine mammal observers on the NCI to 
observe and document pinniped responses to the USAF's activities. On 
VAFB, observers are not able to be physically present to document 
pinniped responses during launch activities due to safety concerns. 
NMFS has included a monitoring requirement that the USAF use camera and 
video recorders with night-vision capabilities on VAFB to observe and 
document pinniped responses when feasible. However, there are numerous 
practicability concerns that preclude NMFS from requiring USAF to use 
this particular type of equipment in all circumstances. These 
practicability concerns include: The distance from observation point to 
pinniped haulout locations on VAFB often exceeds 100 m, rendering video 
and still cameras not useful; infrared cameras are not viable at 
distances greater than approximately 10 m; and pinnipeds will often 
move from one portion of the beach to another after the camera has been 
set up, rendering the camera or video useless in recording pinniped 
behavior. In addition, there are numerous weather-related factors that 
can render video and still cameras useless, such as condensation inside 
the camera housing or precipitation outside the camera housing, fog and 
rain which can obscure the imagery, and wind which can knock over 
tripods. Finally, we are reluctant to include a monitoring requirement 
that may have the unintended result of requiring marine mammal 
observers to approach pinnipeds close enough to set up a camera such 
that the observation itself results in marine mammal harassment.
    Comment: A member of the public expressed concern that the USAF's 
activity could disrupt breeding, promote abandonment of pups, cause 
exhaustion from abandoning haulouts, and possibly cause hearing loss 
amongst seals, and commented that the potential effects on Guadalupe 
fur seals warrant an environmental assessment (EA).
    Response: As described in our Notice of Proposed Rulemaking (84 FR 
341; January 24, 2019), over 20 years of monitoring data support our 
determination that no disruption of breeding, pupping, abandonment of 
haulouts, or hearing loss among any species is expected. We do not 
expect, nor do we authorize, Level A harassment, serious injury or 
mortality as a result of the USAF's activities. Regarding the level of 
NEPA analysis warranted for our action, NMFS' action is limited to the 
authorization of take incidental to the USAF's activities. We have 
determined that this action is consistent with categories of activities 
identified in Categorical Exclusion B4 of the Companion Manual for NAO 
216-6A, which do not individually or cumulatively have the potential 
for significant impacts on the quality of the human environment and for 
which we have not identified any extraordinary circumstances that would 
preclude this categorical exclusion. Accordingly, NMFS has determined 
that the action qualifies to be categorically excluded from further 
NEPA review.
    Comment: A member of the general public commented that measures 
such as studying migration routes and adjusting scheduling for low-
population seasons, or relocating VAFB operations further inland, 
should be taken before considering the take of marine mammals.
    Response: As described in our Notice of Proposed Rulemaking (84 FR 
341; January 24, 2019) and below, the USAF's activities occur year-
round, but we have included mitigation measures to avoid potential 
impacts, when feasible, during times when pups are more likely to be 
present (see the Mitigation section, below). NMFS does not have 
jurisdiction over the location of launch or landing facilities at VAFB.
    Comment: A member of the general public commented that VAFB and the 
surrounding areas, which provides

[[Page 14319]]

unoccupied and largely undisturbed habitat for pinnipeds, could become 
unsuitable to threatened and endangered marine mammals because of 
significant interference from sonic booms and other disturbances from 
the activities of VAFB and recommended that NMFS should prepare an EA 
or EIS.
    Response: As described in our Notice of Proposed Rulemaking (84 FR 
341; January 24, 2019) and below, over 20 years of monitoring data 
support our determination that marine mammal habitat is not expected to 
be negatively impacted by the USAF's activities. The USAF has reported 
increasing numbers of several species on VAFB, including California sea 
lions and northern elephant seals which began pupping on VAFB for the 
first time in 2017. The fact that pinniped numbers are increasing on 
VAFB indicates that these species are not abandoning haulouts and 
rookeries and that haulout and rookery habitat is not becoming 
unsuitable for these species as a result of the USAF's activities, 
which have been ongoing for over 30 years. With regard to the request 
for an EA or EIS, as described in our response to the previous comment, 
NMFS' action is limited to the authorization of take incidental to the 
USAF's activities. We have determined that this action is consistent 
with categories of activities identified in Categorical Exclusion B4 of 
the Companion Manual for NAO 216-6A, which do not individually or 
cumulatively have the potential for significant impacts on the quality 
of the human environment and for which we have not identified any 
extraordinary circumstances that would preclude this categorical 
exclusion.
    Comment: A member of the public commented that abundance of marine 
mammals in the area are already declining and this authorization would 
continue that trend.
    Response: As described in our Notice of Proposed Rulemaking (84 FR 
341; January 24, 2019) and below, the USAF has reported increasing 
numbers of several species on VAFB, including California sea lions and 
northern elephant seals which began pupping on VAFB for the first time 
in 2017. The authorization of incidental take to the USAF is not 
expected to result in Level A harassment, serious injury or mortality 
and no adverse effects on annual rates of recruitment or survival 
(i.e., population-level effects) are anticipated for any marine mammal 
species as a result of the take authorized.
    Comment: A member of the general public expressed concern about the 
impacts of military testing on animals and humans in general and 
expressed concern that not all concerned citizens are made aware of the 
availability of the Notice of Proposed Rule for public comment.
    Response: This rule only applies to the USAF's planned activities 
at VAFB and not other military testing activities. As described in our 
Notice of Proposed Rulemaking (84 FR 341; January 24, 2019) and below, 
the authorization of incidental take to the USAF is not expected to 
result in Level A harassment, serious injury, or mortality and no 
adverse effects on annual rates of recruitment or survival (i.e., 
population-level effects) are anticipated for any marine mammal species 
as a result of the take authorized. NMFS has no jurisdiction on 
potential human health effects from military testing. We notified the 
public of the availability of our Notice of Proposed Rulemaking as 
required by law via the NMFS website (www.fisheries.noaa.gov), via the 
Federal Register (84 FR 341; January 24, 2019) and online at 
www.regulations.gov.

Description of Marine Mammals in the Area of Specified Activities

    There are six marine mammal species with expected occurrence in the 
project area (including at VAFB, on the NCI, and in the waters 
surrounding VAFB and the NCI) that are expected to be affected by the 
specified activities. These are listed in Table 5. This section 
provides summary information regarding local occurrence of these 
species. We have reviewed USAF's species descriptions, including life 
history information, for accuracy and completeness and refer the reader 
to Section 3 of the USAF's application, as well as to NMFS' Stock 
Assessment Reports (SAR; https://www.fisheries.noaa.gov/topic/population-assessments#marine-mammals), rather than reprinting all of 
the information here. Additional general information about these 
species (e.g., physical and behavioral descriptions) may be found on 
NMFS' website (https://www.fisheries.noaa.gov/find-species). 
Information describing two designated unusual mortality events for 
California sea lions and Guadalupe fur seals has been added to this 
section since the proposed rule was published. However, as described in 
the Negligible Impact Analysis and Determination section below, the 
information does not change our analysis or final determinations.
    There are an additional 28 species of cetaceans with expected or 
possible occurrence in the project area. However, we have determined 
that the only potential stressors associated with the specified 
activities that could result in take of marine mammals (i.e., launch 
noise, sonic booms and aircraft operations) only have the potential to 
result in harassment of marine mammals that are hauled out of the 
water. Therefore, we have concluded that the likelihood of the planned 
activities resulting in the harassment of any cetacean to be so low as 
to be discountable. As we have concluded that the likelihood of any 
cetacean being taken incidentally as a result of USAF's planned 
activities to be so low as to be discountable, cetaceans are not 
considered further in this rule.
    Table 5 lists all species with expected potential for occurrence in 
the vicinity of the project during the project timeframe that are 
likely to be affected by the specified activities, and summarizes 
information related to the population or stock, including regulatory 
status under the MMPA and ESA and potential biological removal (PBR), 
where known. For taxonomy, we follow Committee on Taxonomy (2018). PBR 
is defined by the MMPA as the maximum number of animals, not including 
natural mortalities, that may be removed from a marine mammal stock 
while allowing that stock to reach or maintain its optimum sustainable 
population (as described in NMFS's SARs). While no mortality is 
anticipated or authorized here, PBR and annual serious injury and 
mortality from anthropogenic sources are included here as gross 
indicators of the status of the species and other threats.
    Marine mammal abundance estimates presented in this document 
represent the total number of individuals that make up a given stock or 
the total number estimated within a particular study or survey area. 
NMFS's stock abundance estimates for most species represent the total 
estimate of individuals within the geographic area, if known, that 
comprises that stock. For some species, this geographic area may extend 
beyond U.S. waters. All managed stocks in this region are assessed in 
NMFS's U.S. Pacific and Alaska SARs (e.g., Carretta et al., 2018; Muto 
et al., 2018). All values presented in Table 5 are the most recent 
available at the time of publication and are available in the 2017 SARs 
(Carretta et al., 2018; Muto et al., 2018) and draft 2018 SARs 
(available online at: https://www.fisheries.noaa.gov/topic/population-assessments#marine-mammals).

[[Page 14320]]



                  Table 5--Marine Mammal Species Potentially Present in the Project Area That May Be Affected by the USAF's Activities
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                      ESA/MMPA status;   Stock abundance (CV,
            Common name                  Scientific name              Stock           strategic (Y/N)      Nmin, most recent        PBR      Annual M/SI
                                                                                            \1\          abundance survey) \2\                   \3\
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                         Order Carnivora--Superfamily Pinnipedia
--------------------------------------------------------------------------------------------------------------------------------------------------------
Family Otariidae (eared seals and
 sea lions):
    California sea lion............  Zalophus californianus  U.S...................  - ; N              257,606 (n/a, 233,515,       14,011        >=197
                                                                                                         2014).
    Northern fur seal..............  Callorhinus ursinus...  California............  - ; N              14,050 (n/a, 7,524,             451        >=0.8
                                                                                                         2013).
    Steller sea lion...............  Eumetopias jubatus....  Eastern U.S...........  - ; N              41,638 (n/a, 41,638,          2,498          108
                                                                                                         2015).
    Guadalupe fur seal.............  Arctocephalus           Mexico................  T/D ; Y            20,000 (n/a, 15,830,            542        >=3.2
                                      philippii townsendi.                                               2010).
Family Phocidae (earless seals):
    Pacific harbor seal............  Phoca vitulina          California............  - ; N              30,968 (n/a, 27,348,          1,641           30
                                      richardii.                                                         2012).
    Northern elephant seal.........  Mirounga                California breeding...  - ; N              179,000 (n/a, 81,368,         4,882            4
                                      angustirostris.                                                    2010).
--------------------------------------------------------------------------------------------------------------------------------------------------------
\1\ Endangered Species Act (ESA) status: Endangered (E), Threatened (T)/MMPA status: Depleted (D). A dash (-) indicates that the species is not listed
  under the ESA or designated as depleted under the MMPA. Under the MMPA, a strategic stock is one for which the level of direct human-caused mortality
  exceeds PBR or which is determined to be declining and likely to be listed under the ESA within the foreseeable future. Any species or stock listed
  under the ESA is automatically designated under the MMPA as depleted and as a strategic stock.
\2\ NMFS marine mammal stock assessment reports online at: https://www.fisheries.noaa.gov/topic/population-assessments#marine-mammals. CV is coefficient
  of variation; Nmin is the minimum estimate of stock abundance. In some cases, CV is not applicable.
\3\ These values, found in NMFS's SARs, represent annual levels of human-caused mortality plus serious injury from all sources combined (e.g.,
  commercial fisheries, ship strike). Annual M/SI often cannot be determined precisely and is in some cases presented as a minimum value or range.

    All species that could potentially occur in the project area and 
that may be affected by the planned activities are included in Table 5. 
All six species (with six managed stocks) temporally and spatially co-
occur with the activity to the degree that take is reasonably likely to 
occur.
    Beginning in January 2013, elevated strandings of California sea 
lion pups were observed in southern California, with live sea lion 
strandings nearly three times higher than the historical average. 
Findings to date indicate that a likely contributor to the large number 
of stranded, malnourished pups was a change in the availability of sea 
lion prey for nursing mothers, especially sardines. The Working Group 
on Marine Mammal Unusual Mortality Events determined that the ongoing 
stranding event meets the criteria for an Unusual Mortality Event (UME) 
and declared California sea lion strandings from 2013 through 2017 to 
be one continuous UME. The causes and mechanisms of this event remain 
under investigation. For more information on the UME, see: https://www.fisheries.noaa.gov/national/marine-life-distress/2013-2017-california-sea-lion-unusual-mortality-event-california.
    Increased strandings of Guadalupe fur seals started occurring along 
the entire coast of California in early 2015. This event was declared a 
marine mammal UME. Strandings in 2015 were eight times higher than the 
historical average, peaking from April through June of that year, and 
have since declined but continue at a rate that is above average. Most 
stranded individuals have been weaned pups and juveniles (1-2 years 
old). For more information on this ongoing UME, see: https://www.fisheries.noaa.gov/national/marine-life-distress/2015-2018-guadalupe-fur-seal-unusual-mortality-event-california.
    Additional detail regarding the affected species and stocks, 
including local occurrence data, was provided in our Notice of Proposed 
Rulemaking (84 FR 341; January 24, 2019) and is not repeated here.

Marine Mammal Hearing

    Hearing is the most important sensory modality for marine mammals 
underwater, and exposure to anthropogenic sound can have deleterious 
effects. To appropriately assess the potential effects of exposure to 
sound, it is necessary to understand the frequency ranges marine 
mammals are able to hear. Current data indicate that not all marine 
mammal species have equal hearing capabilities (e.g., Richardson et 
al., 1995; Wartzok and Ketten, 1999; Au and Hastings, 2008). To reflect 
this, Southall et al. (2007) recommended that marine mammals be divided 
into functional hearing groups based on directly measured or estimated 
hearing ranges on the basis of available behavioral response data, 
audiograms derived using auditory evoked potential techniques, 
anatomical modeling, and other data. Note that no direct measurements 
of hearing ability have been successfully completed for mysticetes 
(i.e., low-frequency cetaceans). Subsequently, NMFS (2018) described 
generalized hearing ranges for these marine mammal hearing groups. 
Generalized hearing ranges were chosen based on the approximately 65 dB 
threshold from the normalized composite audiograms, with the exception 
for lower limits for low-frequency cetaceans where the lower bound was 
deemed to be biologically implausible and the lower bound from Southall 
et al. (2007) retained. The functional groups and the associated 
frequencies are indicated below (note that these frequency ranges 
correspond to the range for the composite group, with the entire range 
not necessarily reflecting the capabilities of every species within 
that group):
     Pinnipeds in water; Phocidae (true seals): Generalized 
hearing is estimated to occur between approximately 50 Hz to 86 kHz; 
and
     Pinnipeds in water; Otariidae (eared seals): Generalized 
hearing is estimated to occur between 60 Hz and 39 kHz.
    The pinniped functional hearing group was modified from Southall et 
al. (2007) on the basis of data indicating that phocid species have 
consistently demonstrated an extended frequency range of hearing 
compared to otariids, especially in the higher frequency range 
(Hemil[auml] et al., 2006; Kastelein et al., 2009; Reichmuth and Holt, 
2013).
    For more detail concerning these groups and associated frequency 
ranges, please see NMFS (2018) for a review of available information. 
Six species of marine mammal (four otariid and two phocid species) have 
the reasonable potential to co-occur with the planned activities. 
Please refer to Table 5.

[[Page 14321]]



   Table 3--Relevant Marine Mammal Functional Hearing Groups and Their
                       Generalized Hearing Ranges
------------------------------------------------------------------------
          Hearing group                 Generalized hearing range *
------------------------------------------------------------------------
Phocid pinnipeds (PW)              50 Hz to 86 kHz.
 (underwater) (true seals).
Otariid pinnipeds (OW)             60 Hz to 39 kHz.
 (underwater) (sea lions and fur
 seals).
------------------------------------------------------------------------
* Represents the generalized hearing range for the entire group as a
  composite (i.e., all species within the group), where individual
  species' hearing ranges are typically not as broad. Generalized
  hearing range chosen based on ~65 dB threshold from normalized
  composite audiogram, with the exception for lower limits for LF
  cetaceans (Southall et al., 2007) and PW pinniped (approximation).

Potential Effects of Specified Activities on Marine Mammals and Their 
Habitat

    We provided discussion of the potential effects of the specified 
activity on marine mammals and their habitat in our Notice of Proposed 
Rulemaking (84 FR 341; January 24, 2019). Therefore, we do not reprint 
the information here but refer the reader to that document. That 
document included a summary and discussion of the ways that components 
of the specified activity may impact marine mammals and their habitat, 
as well as general background information on sound. The Estimated Take 
section later in this document includes a quantitative analysis of the 
number of individuals that are expected to be taken by this activity. 
The Negligible Impact Analysis and Determination section considers the 
content of this section and the material it references, the Estimated 
Take section, and the Mitigation section, to draw conclusions regarding 
the likely impacts of these activities on the reproductive success or 
survivorship of individuals and how those impacts on individuals are 
likely to impact marine mammal species or stocks.

Estimated Take

    This section provides an estimate of the number of incidental takes 
authorized through this rule, which will inform both NMFS' 
consideration of ``small numbers'' and the negligible impact 
determination. We note that the take numbers have been revised slightly 
since the proposed rule, as indicated within Table 11 and described 
immediately above it. These changes do not represent significant 
increases and have not resulted in any changes to our findings with 
respect to negligible impacts or small numbers.
    Harassment is the only type of take expected to result from these 
activities. Except with respect to certain activities not pertinent 
here, section 3(18) of 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).
    Authorized takes would be by Level B harassment only, in the form 
of disruption of behavioral patterns for individual marine mammals 
resulting from exposure to sounds associated with the planned 
activities. Based on the nature of the activity, Level A harassment, 
serious injury, and mortality are neither anticipated nor authorized. 
Below we describe how the take is estimated.
    Generally speaking, we estimate take by considering: (1) Acoustic 
thresholds above which NMFS believes the best available science 
indicates marine mammals will be behaviorally harassed or incur some 
degree of permanent hearing impairment; (2) the area that will be 
ensonified above these levels in a day; (3) the density or occurrence 
of marine mammals within these ensonified areas; and, (4) and the 
number of days of activities. We note that while these basic factors 
can contribute to an initial prediction of takes, additional 
information that can qualitatively inform take estimates is also 
sometimes available (e.g., previous monitoring results or average group 
size). Below, we describe the factors considered here in more detail 
and present the take estimate.

Acoustic Thresholds

    Using the best available science, NMFS has developed acoustic 
thresholds that identify the received level of sound above which 
exposed marine mammals would be reasonably expected to be behaviorally 
harassed (equated to Level B harassment) or to incur PTS of some degree 
(equated to Level A harassment). Thresholds have also been developed 
identifying the received level of in-air sound above which exposed 
pinnipeds would likely be behaviorally harassed.
    Level B Harassment for non-explosive sources--Though significantly 
driven by received level, the onset of behavioral disturbance from 
anthropogenic noise exposure is also informed to varying degrees by 
other factors related to the source (e.g., frequency, predictability, 
duty cycle), the environment (e.g., bathymetry), and the receiving 
animals (hearing, motivation, experience, demography, behavioral 
context) and can be difficult to predict (Southall et al., 2007, 
Ellison et al., 2012). Based on what the available science indicates 
and the practical need to use a threshold based on a factor that is 
both predictable and measurable for most activities, NMFS uses a 
generalized acoustic threshold based on received level to estimate the 
onset of behavioral harassment. For in-air sounds, NMFS predicts that 
harbor seals exposed above received levels of 90 dB re 20 [mu]Pa (rms) 
will be behaviorally harassed, and other pinnipeds will be harassed 
when exposed above 100 dB re 20 [mu]Pa (rms) (Table 6).

Table 6--NMFS Criteria for Pinniped Harassment From Exposure to Airborne
                                  Sound
------------------------------------------------------------------------
             Species                    Level B harassment threshold
------------------------------------------------------------------------
Harbor seals.....................  90 dB re 20 [mu]Pa.
All other pinniped species.......  100 dB re 20 [mu]Pa.
------------------------------------------------------------------------

    In the absence of site-specific data, NMFS typically relies on the 
acoustic criteria shown in Table 6 to estimate take as a result of 
exposure to airborne sound. However, in this case, more than 20 years 
of monitoring data exists on pinniped responses to the stimuli 
associated with the planned activities in the particular geographic 
area of the

[[Page 14322]]

planned activities. Therefore, we consider these data to be the best 
available information in regard to estimating take of pinnipeds to 
stimuli associated with the planned activities. These data suggest that 
pinniped responses to the stimuli associated with the planned 
activities are dependent on species and intensity of the stimuli.
    The data recorded by USAF at VAFB and the NCI over the past 25 
years has shown that pinniped reactions to sonic booms and launch noise 
vary depending on the species, the intensity of the stimulus, and the 
location (i.e., on VAFB or the NCI). At the NCI, harbor seals have 
tended to react more strongly to sonic booms than most other species, 
with California sea lions also appearing to be somewhat more sensitive 
to sonic booms than some other pinniped species (Table 7). Northern fur 
seals generally show little or no reaction, and northern elephant seals 
generally exhibit No reaction at all, except perhaps a heads-up 
response or some stirring, especially if sea lions in the same area 
mingled with the elephant seals react strongly to the boom (Table 7). 
No data is available on Steller sea lion or Guadalupe fur seal 
responses to sonic booms.
    There is less data available on pinniped responses at VAFB during 
launches, due to limitations on real-time monitoring associated with 
human safety concerns, but the available data indicates that all harbor 
seals and California sea lions have tended to flush to the water at 
VAFB during launches while 10 percent or less of northern elephant 
seals have flushed to the water during launch. Monitoring data also 
show that reactions to sonic booms tend to be insignificant below 1.0 
psf and that, even above 1.0 psf, only a portion of the animals present 
have reacted to the sonic boom depending on the species. Lower energy 
sonic booms (<1.0 psf) have typically resulted in little to no 
behavioral responses among pinnipeds at VAFB, including head raising 
and briefly alerting but returning to normal behavior shortly after the 
stimulus (Table 7). More powerful sonic booms have sometimes resulted 
in some species of pinnipeds flushing from haulouts.

    Table 7--Observed Pinniped Responses to Sonic Booms at San Miguel Island, Based on USAF Launch Monitoring
                                                     Reports
----------------------------------------------------------------------------------------------------------------
                                          Sonic boom                                    Species observed and
             Launch event                level  (psf)      Monitoring location               responses
----------------------------------------------------------------------------------------------------------------
Athena II (April 27, 1999)............             1.0  Adams Cove...............  California sea lion: 866
                                                                                    alerted; 232 (27%) flushed
                                                                                    into water.
                                                                                   Northern elephant seal:
                                                                                    Alerted but did not flush.
                                                                                   Northern fur seal: Alerted
                                                                                    but did not flush.
Athena II (September 24, 1999)........            0.95  Point Bennett............  California sea lion: 12 of
                                                                                    600 (2%) flushed into water.
                                                                                   Northern elephant seal:
                                                                                    Alerted but did not flush.
                                                                                   Northern fur seal: Alerted
                                                                                    but did not flush.
Delta II 20 (November 20, 2000).......             0.4  Point Bennett............  California sea lion: 60 pups
                                                                                    flushed into water; No
                                                                                    reaction from focal group.
                                                                                   Northern elephant seal: No
                                                                                    reaction.
Atlas II (September 8, 2001)..........            0.75  Cardwell Point...........  California sea lion (Group
                                                                                    1): No reaction (1,200
                                                                                    animals).
                                                                                   California sea lion (Group
                                                                                    2): No reaction (247
                                                                                    animals).
                                                                                   Northern elephant seal: No
                                                                                    reaction.
                                                                                   Harbor seal: 2 of 4 flushed
                                                                                    into water.
Delta II (February 11, 2002)..........            0.64  Point Bennett............  California sea lions and
                                                                                    northern fur seals: No
                                                                                    reaction among 485 animals
                                                                                    in 3 groups.
                                                                                   Northern elephant seal: No
                                                                                    reaction among 424 animals
                                                                                    in 2 groups.
Atlas II (December 2, 2003)...........            0.88  Point Bennett............  California sea lion:
                                                                                    Approximately 40% alerted;
                                                                                    several flushed to water
                                                                                    (number unknown--night
                                                                                    launch).
                                                                                   Northern elephant seal: No
                                                                                    reaction.
Delta II (July 15, 2004)..............            1.34  Adams Cove...............  California sea lion: 10%
                                                                                    alerted (number unknown--
                                                                                    night launch).
Atlas V (March 13, 2008)..............            1.24  Cardwell Point...........  Northern elephant seal: No
                                                                                    reaction (109 pups).
Delta II (May 5, 2009)................            0.76  West of Judith Rock......  California sea lion: No
                                                                                    reaction (784 animals).
Atlas V (April 14, 2011)..............            1.01  Cuyler Harbor............  Northern elephant seal: No
                                                                                    reaction (445 animals).
Atlas V (September 13, 2012)..........            2.10  Cardwell Point...........  California sea lion: No
                                                                                    reaction (460 animals).
                                                                                   Northern elephant seal: No
                                                                                    reaction (68 animals).
                                                                                   Harbor seal: 20 of 36 (56%)
                                                                                    flushed into water.
Atlas V (April 3, 2014)...............            0.74  Cardwell Point...........  Harbor seal: 1 of ~25 flushed
                                                                                    into water; no reaction from
                                                                                    others.
Atlas V (December 12, 2014)...........            1.18  Point Bennett............  Calif. sea lion: 5 of ~225
                                                                                    alerted; none flushed.
Atlas V (October 8, 2015).............            1.96  East Adams Cove of Point   Calif. sea lion: ~60% of CSL
                                                         Bennett.                   alerted and raised their
                                                                                    heads. None flushed.
                                                                                   Northern elephant seal: No
                                                                                    visible response to sonic
                                                                                    boom, none flushed.
                                                                                   Northern fur seal: 60%
                                                                                    alerted and raised their
                                                                                    heads. None flushed.
Atlas V (March 1, 2017)...............        \a\ ~0.8  Cuyler Harbor on San       Northern elephant seal: 13 of
                                                         Miguel Island.             235 (6%) alerted; none
                                                                                    flushed.
----------------------------------------------------------------------------------------------------------------
\a\ Peak sonic boom at the monitoring site was ~2.2 psf, but was in infrasonic range--not audible to pinnipeds.
  Within the audible frequency spectrum, boom at monitoring site estimated at ~0.8 psf.


[[Page 14323]]

Ensonified Area

    The USAF is not able to predict the exact areas that will be 
impacted by noise associated with the specified activities, including 
sonic booms, launch noise and UAS-related noise. Numerous launch 
locations are utilized on VAFB, each of which results in different 
parts of the base (and different haulouts) being ensonified by noise 
during a launch. In addition, rocket launches by private entities on 
VAFB are expected to increase over the next 5 years and the USAF is not 
able to predict the trajectories of these future rocket launch 
programs. Therefore, for the purposes of estimating take, we 
conservatively estimate that all haulouts on VAFB will be ensonified by 
launch noise during a rocket or missile launch.
    On the NCI, sonic booms resulting from launches sometimes impact 
San Miguel Island (SMI) and occasionally Santa Rosa Island (SRI). Santa 
Cruz and Anacapa Islands are not expected to be impacted by sonic booms 
in excess of 1.0 psf (USAF, 2018), therefore only marine mammals on San 
Miguel and Santa Rosa Islands may potentially be taken by sonic booms. 
We estimate that, when a sonic boom impacts the NCI, 25 percent of 
pinniped haulouts on SMI and SRI will be ensonified by a sonic boom 
above 1.0 psf. We consider this to be a conservative assumption based 
on sonic boom models which show that areas predicted to be impacted by 
a sonic boom with peak overpressures of 1.0 psf and above are typically 
limited to limited areas of an island, and sonic boom model results 
tend to overestimate actual recorded sonic booms on the NCI (pers. 
comm. R. Evans, USAF, to J. Carduner, NMFS OPR).

Marine Mammal Occurrence

    In this section we provide the information about the presence, 
density, or group dynamics of marine mammals that will inform the take 
calculations. Data collected from marine mammal surveys, including 
monthly marine mammal surveys conducted by the USAF at VAFB, as well as 
data collected by NMFS at NCI, represent the best available information 
on the occurrence of the six pinniped species expected to occur in the 
project area. Monthly marine mammal surveys at VAFB are conducted to 
document the abundance, distribution and status of pinnipeds at VAFB. 
When possible, these surveys are timed to coincide with the lowest 
afternoon tides of each month, when the greatest numbers of animals are 
usually hauled out. Data gathered during monthly surveys include: 
Species, number, general behavior, presence of pups, age class, gender, 
reactions to natural or human-caused disturbances, and environmental 
conditions. The quality and amount of information available on 
pinnipeds in the project area varies depending on species; some species 
are surveyed regularly at VAFB and the NCI (e.g., California sea lion), 
while other species are surveyed less frequently (e.g., northern fur 
seals and Guadalupe fur seals). However, the best available data was 
used to estimate take numbers. Take estimates for all species are shown 
in Table 13.
    Harbor Seal--Pacific harbor seals are the most common marine mammal 
inhabiting VAFB, congregating on several rocky haulout sites along the 
VAFB coastline. They also haul out, breed, and pup on isolated beaches 
and in coves throughout the coasts of the NCI. Data from VAFB monthly 
surveys for the three most recent years for which data is available 
(2015, 2016 and 2017) shows the mean number of harbor seals recorded 
monthly on VAFB during those years was 255 (CEMML 2016, 2017, 2018). 
The USAF estimated the number of harbor seals that may be hauled out at 
VAFB during all months of the year from 2019-2024 to be 300. We think 
this is a reasonable estimate given the monthly survey data as 
described above and the fluctuations in harbor seal numbers observed on 
VAFB. Therefore, take of harbor seals at VAFB was estimated based on a 
conservative estimate of 300 harbor seals hauled out during any month 
on VAFB. Take of harbor seals at the NCI was estimated based on the 
mean count totals from survey data collected on SMI, SRI, and 
Richardson Rock (located 10 km northwest of SMI), from 2011 to 2015 by 
the NMFS SWFSC (Lowry et al., 2017).
    California sea lion--California sea lions are common offshore of 
VAFB and haul out on rocks and beaches along the coastline of VAFB, 
where their numbers have been increasing in recent years, though 
pupping rarely occurs on the VAFB coastline. They haul out in large 
numbers on the NCI and rookeries exist on SMI. The data from monthly 
marine mammal surveys at VAFB from 2015, 2016 and 2017 shows a mean of 
11 California sea lions recorded at VAFB (CEMML 2016, 2017, 2018). 
However, numbers of California sea lions appear to be increasing at 
VAFB, with a mean of 21 recorded during surveys in 2017, including 68 
recorded in September 2017 (CEMML, 2018). The USAF estimated in their 
application that up to 125 California sea lions may be hauled out at 
VAFB during any month of the year. However, based on the monthly survey 
data, for the purposes of estimating take, we conservatively estimate 
that up to 75 California sea lions may be hauled out during any month 
of the year. Take of California sea lions at the NCI was estimated 
based on the mean monthly count totals from survey data collected on 
SMI, SRI, and Richardson Rock from 2011 to 2015 by the NMFS SWFSC 
(Lowry et al., 2017).
    Steller Sea Lion--Steller sea lions occur in very small numbers at 
VAFB and on SMI. They do not currently have rookeries at VAFB or the 
NCI. Data from monthly marine mammal surveys at VAFB from 2015, 2016 
and 2017 show a mean of 2.4 Steller sea lions recorded at VAFB (CEMML 
2016, 2017, 2018). The USAF estimated the number of Steller sea lions 
that may be hauled out at VAFB during all months of the year from 2019-
2024 to be 3. We consider this a reasonable estimate based on monthly 
survey data. Steller sea lions haul out in very small numbers on SMI, 
and comprehensive survey data for Steller sea lions in the NCI is not 
available. Take of Steller sea lions on the NCI was estimated based on 
subject matter expert input indicating that a maximum of 4 Steller sea 
lions have been observed on SMI at any time (pers. comm., S. Melin, 
NMFS Marine Mammal Laboratory (MML), to J. Carduner, NMFS OPR).
    Northern elephant seal--Northern elephant seals haul out 
sporadically on rocks and beaches along the coastline of VAFB and at 
Point Conception and have rookeries on SMI and SRI and at one location 
at VAFB. Data from monthly marine mammal surveys at VAFB from 2015, 
2016 and 2017 show a mean of 39.4 northern elephant seals recorded at 
VAFB (CEMML 2016, 2017, 2018). The USAF estimated the number of 
northern elephant seals that may be hauled out at VAFB during all 
months of the year from 2019-2024 to be 60. However, a mean of 76.3 
northern elephant seals was recorded at VAFB in 2017 (CEMML, 2018), 
suggesting northern elephant seal numbers at VAFB may be increasing. 
For the purposes of estimating take on VAFB, we therefore 
conservatively estimate that the number of northern elephant seals that 
may be hauled out at VAFB during all months of the year from 2019-2024 
to be 100. Take of northern elephant seals at the NCI was estimated 
based on the mean count totals from survey data collected on SMI, SRI, 
and Richardson Rock from 2011 to 2015 by the NMFS SWFSC (Lowry et al., 
2017).
    Northern fur seal--Northern fur seals have rookeries on SMI, the 
only island in the NCI on which they have been observed. No haulouts or 
rookeries exist for northern fur seals on the mainland coast, including 
VAFB, therefore no take

[[Page 14324]]

of northern fur seals is expected at VAFB. Comprehensive survey data 
for northern fur seals in the project area is not available. Estimated 
take of northern fur seals was therefore based on subject matter expert 
input which indicated that from June through August, the population at 
SMI is at its maximum, with an estimated 13,384 animals at SMI 
(Carretta et al., 2015), with approximately 7,000 present from 
September through November, and approximately 125 present from November 
through May (pers. comm., S. Melin, NMFS Marine Mammal Laboratory (MML) 
to J. Carduner, NMFS OPR).
    Guadalupe fur seal--There are estimated to be approximately 20-25 
individual Guadalupe fur seals that have fidelity to San Miguel Island 
(pers. comm. S. Melin, NMFS MML, to J. Carduner, NMFS OPR). No haulouts 
or rookeries exist for Guadalupe fur seals on the mainland coast, 
including VAFB, therefore no take of Guadalupe fur seals is expected at 
VAFB. Survey data on Guadalupe fur seals in the project area is not 
available. Estimated take of Guadalupe fur seals was based on the 
maximum number of Guadalupe fur seals observed at any time on SMI (13) 
(pers. comm., J. LaBonte, ManTech SRS Technologies Inc., to J. 
Carduner, NMFS, Feb. 29, 2016); it was therefore conservatively assumed 
that 13 Guadalupe fur seals may be hauled out the NCI at any given 
time.

Take Calculation and Estimation

    Here we describe how the information provided above is brought 
together to produce a quantitative take estimate.
    NMFS currently uses a three-tiered scale to determine whether the 
response of a pinniped on land to stimuli rises to the level of 
behavioral harassment under the MMPA (Table 8). NMFS considers the 
behaviors that meet the definitions of both movements and flushes in 
Table 8 to qualify as behavioral harassment. Thus a pinniped on land is 
considered by NMFS to have been behaviorally harassed if it moves 
greater than two times its body length, or if the animal is already 
moving and changes direction and/or speed, or if the animal flushes 
from land into the water. Animals that become alert without such 
movements are not considered harassed. See Table 8 for a summary of the 
pinniped disturbance scale.

                           Table 8--Levels of Pinniped Behavioral Disturbance on Land
----------------------------------------------------------------------------------------------------------------
                                                                                            Characterized as
            Level                  Type of response                Definition            behavioral  harassment
                                                                                                by  NMFS
----------------------------------------------------------------------------------------------------------------
1...........................  Alert....................  Seal head orientation or       No.
                                                          brief movement in response
                                                          to disturbance, which may
                                                          include turning head towards
                                                          the disturbance, craning
                                                          head and neck while holding
                                                          the body rigid in a u-shaped
                                                          position, changing from a
                                                          lying to a sitting position,
                                                          or brief movement of less
                                                          than twice the animal's body
                                                          length.
2...........................  Movement.................  Movements in response to the   Yes.
                                                          source of disturbance,
                                                          ranging from short
                                                          withdrawals at least twice
                                                          the animal's body length to
                                                          longer retreats over the
                                                          beach, or if already moving
                                                          a change of direction of
                                                          greater than 90 degrees.
3...........................  Flush....................  All retreats (flushes) to the  Yes.
                                                          water.
----------------------------------------------------------------------------------------------------------------

    Take estimates were calculated separately for each stock in each 
year the regulations are valid (from 2019-2024), on both VAFB and the 
NCI, based on the number of animals assumed hauled out at each location 
that are expected to be behaviorally harassed by the stimuli associated 
with the specified activities (i.e., launch, sonic boom, or UAS). 
First, the number of hauled out animals per month was estimated at both 
VAFB and the NCI for each stock, based on survey data and subject 
matter expert input as described above. Then we estimated the number of 
hauled out animals per month that would be behaviorally harassed, by 
applying a correction factor to account for the likelihood that the 
animals would respond at a Level 2 or 3 response (Table 8). Those 
correction factors differ depending on the location (i.e., VAFB or the 
NCI) and on the reactiveness of each species to the stimuli (Table 9), 
and are based on the best available information (in this case, several 
years of monitoring data on both VAFB and the NCI (Table 7)).

 Table 9--Proportion of Each Species Assumed To Be Harassed by Launch or
                     Sonic Boom on VAFB and the NCI
------------------------------------------------------------------------
                                      Proportion of      Proportion of
                                       individuals        individuals
         Species  (stock)             assumed taken      assumed taken
                                      per sonic boom       per launch
                                        (NCI)  (%)        (VAFB)  (%)
------------------------------------------------------------------------
Harbor seal (CA)..................                 50                100
CA sea lion (U.S).................                 25                100
NES (CA breeding).................                  5                 15
Steller Sea Lion (Eastern)........                 50                100
Northern fur seal (CA)............                 25              (n/a)
Guadalupe fur seal (Mexico).......                 50              (n/a)
------------------------------------------------------------------------


[[Page 14325]]

    At VAFB, we assume that all pinnipeds at all haulouts would be 
taken by Level B harassment by launch noise. This is a conservative 
assumption, as some haulouts are separated by several miles from launch 
locations, and presumably pinnipeds at haulouts further from the launch 
location would not react at the same rates as those located near the 
launch. For pinnipeds on the NCI, we conservatively assume that 25 
percent of haulouts would be impacted by a sonic boom with a psf above 
1.0, if such a sonic boom were to impact the NCI (not all launches 
result in sonic booms on the NCI). Thus, for pinnipeds on the NCI, an 
additional .25 correction factor was applied to the take estimate, to 
account for the fact that approximately 25 percent of haulouts on the 
NCI are expected to be impacted by a sonic boom with a psf above 1.0, 
if such a sonic boom were to impact the NCI. For launches on VAFB, we 
conservatively assume all pinnipeds will be exposed to launch noise. 
Take was calculated monthly, as abundance estimates for some species 
vary on VAFB and the NCI depending on season. The resulting numbers 
were then multiplied by the number of activities resulting in take 
(sonic booms or launches) estimated to occur in a month, and then 
summed to get total numbers of each stock estimated to be taken at each 
location per year.
    Rocket launches from VAFB have the potential to result in the 
harassment of pinnipeds that are hauled out of the water as a result of 
exposure to sound from launch noise (on VAFB) or as a result of 
exposure to sound from sonic booms. Based on several years of 
monitoring data, harassment of marine mammals is unlikely to occur when 
the intensity of a sonic boom is below 1.0 psf (Table 7). The 
likelihood of a sonic boom with a measured psf above 1.0 impacting the 
NCI is dependent on the size of the rocket (i.e., larger rockets are 
more likely to result in a sonic boom on the NCI than smaller rockets). 
The USAF estimated 33 percent of large rockets, 25 percent of medium 
sized rockets, and 10 percent of small sized rockets would result in 
sonic booms on the NCI (USAF, 2018).
    The recovery of the Falcon 9 First Stage may also result in a sonic 
boom impacting the NCI or VAFB (USAF, 2018). However, not all Falcon 9 
First Stage recoveries are expected to result in take of marine 
mammals. This is because some pinnipeds that respond to a launch of a 
Falcon 9 First Stage recovery by moving or flushing to the water (i.e., 
being taken) would have also responded by moving or flushing to the 
water in reaction to the launch of the Falcon 9 rocket that would have 
occurred less than 10 minutes earlier (USAF, 2018). As we do not 
consider an individual marine mammal to be taken more than once within 
a 24 hour period, those animals would not be considered taken by the 
Falcon 9 recovery as they had already been taken by the launch less 
than 10 minutes earlier.
    No takes of marine mammals from Falcon 9 First Stage recoveries are 
expected to occur at VAFB. For harbor seals, California sea lions and 
Steller sea lions at VAFB, we are assuming 100 percent of individuals 
hauled out will be harassed by the launch of the Falcon 9 rocket. 
Therefore, as we do not consider an individual marine mammal to be 
taken more than once within a 24 hour period, those animals would not 
be considered taken by the Falcon 9 recovery. For northern elephant 
seals, we do not expect any individuals will be harassed by a Falcon 9 
First Stage recovery, beyond those that are harassed by the launch of 
the Falcon 9 less than 10 minutes earlier, given their documented lack 
of responsiveness (Table 7). Northern fur seals and Guadalupe fur seals 
are not expected to occur on VAFB.
    On the NCI, Falcon 9 First Stage recoveries may result in takes of 
marine mammals above and beyond the takes that occur as a result of 
launches of the Falcon 9 rocket. It is possible that a sonic boom 
resulting from a Falcon 9 First Stage recovery may impact a different 
area on the NCI than the sonic boom from the launch of the rocket. When 
this occurs, we would assume different animals on the NCI could be 
taken as a result of the Falcon 9 recovery than those that were taken 
in a different location as a result of the sonic boom from the launch. 
USAF estimates that up to 12 Falcon 9 First Stage recoveries would 
occur per year. We conservatively estimate 33 percent (or one third) of 
Falcon 9 First Stage recoveries would result in a sonic boom on the 
NCI, thereby resulting in up to 4 sonic booms per year on the NCI, per 
year. This is a conservative estimate as the Falcon 9 is a medium size 
rocket and USAF estimates only 25 percent of medium sized rockets would 
result in a sonic boom. In addition, as of March 2019, no Falcon 9 
First Stage recoveries have resulted in a sonic boom with a psf above 
1.0 impacting the NCI. We conservatively assume 50 percent of the sonic 
booms resulting from the Falcon 9 First Stage recoveries would impact a 
different location on the NCI than the sonic boom resulting from the 
launch of the Falcon 9. Therefore, we conservatively estimate that two 
sonic booms from Falcon 9 First Stage recoveries would result in take 
of entirely new animals (above and beyond the takes that occurred on 
launch) on the NCI per year.
    The estimated numbers of sonic booms impacting the NCI per year 
that may result in marine mammal takes from rocket launches and Falcon 
9 First Stage recoveries is shown in Table 10. These numbers are based 
on the expected number of rocket launches (Table 1), the percentages of 
large, medium, and small rocket launches that would result in sonic 
booms on the NCI (i.e., 33 percent, 25 percent, and 10 percent, 
respectively) (USAF, 2018), and the expected number of sonic booms 
resulting from Falcon 9 First Stage recoveries as described above.

  Table 10--Estimated Sonic Booms Impacting the NCI Above 1.0 psf per Year Expected To Result in Take of Marine
                                                     Mammals
----------------------------------------------------------------------------------------------------------------
                                                                             Estimated sonic
                                                          Estimated sonic     booms per year
                                                           booms per year     resulting from   Total sonic booms
                          Year                             resulting from        Falcon 9      per year expected
                                                         launches expected      recoveries     to result in take
                                                         to result in take     expected to         on the NCI
                                                                 *            result in take
----------------------------------------------------------------------------------------------------------------
2019...................................................                  5                  2                  7
2020...................................................                * 7                  2                  9
2021...................................................                 11                  2                 13
2022...................................................                 14                  2                 16
2023...................................................                 19                  2                 21

[[Page 14326]]

 
2024 **................................................                 20                  2                 22
----------------------------------------------------------------------------------------------------------------
* All numbers are calculated based on the number of each rocket size expected to be launched in that year (Table
  1) and the percentages of each rocket size expected to result in a sonic boom impacting the NCI based on USAF
  estimates. The calculated number of sonic booms in 2020 is 6.4. However we rounded up to 7 to be conservative.
** Not all sonic booms impacting the NCI in 2024 would occur during the period of validity for this rule.

    For pinnipeds on VAFB, the number of launches estimated per year 
(Table 1) was used to estimate take in each year (e.g., in 2023, the 
USAF expects 100 rocket and 15 missile launches will occur, thus 115 
launches was used to estimate takes on VAFB in 2023). For pinnipeds on 
the NCI, the number of sonic booms expected to result in take (Table 
10) was used to estimate take in each year (e.g., in 2023, 21 sonic 
booms resulting in marine mammal take are expected to impact the NCI. 
21 sonic booms was thus used to estimate takes on the NCI in 2023). 
Note that this rule is only valid for less than four months in the year 
2024; thus the highest number of launches and sonic booms anticipated 
to occur in any single year during the period of validity for the rule 
would be in 2023, despite the fact that more launches are anticipated 
to occur in calendar year 2024.
    It is possible that take of marine mammals could occur as a result 
of UASs, depending on noise signature and means of propulsion of the 
UAS. Monitoring data on pinniped responses to UAS-related stimuli is 
not available. The USAF estimated that 3,000 instances of harbor seal 
harassment and 500 instances of California sea lion harassment would 
occur at VAFB over the 5 years that the regulations are valid. We 
therefore divided those numbers (3,000 instances of harbor seal 
harassment and 500 instances of California sea lion harassment) by 5 to 
estimate the numbers of take per year and we authorize the numbers 
shown in Table 11.
    We note that some take numbers authorized are higher than those we 
proposed authorizing in the Notice of Proposed Rulemaking (84 FR 341; 
January 24, 2019). This revision resulted from comments received from 
the Marine Mammal Commission, after the proposed rule was published, 
which recommended that we account for the potential for additional 
sonic booms that may occur on the NCI as a result of Falcon 9 landings. 
We agreed with the Commission and have included those additional sonic 
booms, as well as the additional takes that may occur as a result of 
those additional sonic booms, in the final rule. The Commission also 
noted following the publishing of the proposed rule that additional 
marine mammals may be taken at Point Conception (on the mainland south 
of VAFB), above and beyond those we assumed may be taken at VAFB; we 
agreed with the Commission and have authorized additional takes that 
may occur at Point Conception. These revisions in take numbers do not 
represent significant increases and have not resulted in any changes to 
our findings with respect to negligible impacts or small numbers for 
any species or stocks of marine mammals.
    The numbers of incidental take expected to occur on VAFB as a 
result of the specified activities is shown in Table 11. The numbers of 
incidental take expected to occur on the NCI as a result of the 
specified activities is shown in Table 12. The total numbers of 
incidental take expected to occur and authorized are shown in Table 13. 
The take estimates presented in Tables 11, 12 and 13 are based on the 
best available information on marine mammal populations in the project 
location and responses among marine mammals to the stimuli associated 
with the planned activities and are considered conservative.

                                                              Table 11--Estimated Numbers of Marine Mammals Taken at VAFB per Year
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                      2019                  2020                  2021                  2022                  2023                  2024*
                      Species  (stock)                       -----------------------------------------------------------------------------------------------------------------------------------
                                                                 VAFB       UAS        VAFB       UAS        VAFB       UAS        VAFB       UAS        VAFB       UAS        VAFB       UAS
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Harbor seal (CA)............................................     18,192        600     21,192        600     25,692        600     33,192        600     40,692        600     15,567        600
California sea lion (U.S.)..................................      3,300        100      4,050        100      5,175        100      7,050        100      8,925        100      2,644        100
Northern elephant seal (CA breeding)........................        800  .........        950  .........      1,175  .........      1,550  .........      1,925  .........        534  .........
Steller Sea Lion (Eastern)..................................        120  .........        150  .........        195  .........        270  .........        345  .........         94  .........
Northern fur seal (CA)......................................          0  .........          0  .........          0  .........          0  .........          0  .........  .........  .........
Guadalupe fur seal (Mexico).................................          0  .........          0  .........          0  .........          0  .........          0  .........  .........  .........
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
* Based on launches and UAS operations occurring during the period of validity for the rule (less than four months in 2024).


                                         Table 12--Estimated Numbers of Marine Mammals Taken on the NCI per Year
--------------------------------------------------------------------------------------------------------------------------------------------------------
                     Species (stock)                           2019            2020            2021            2022            2023           2024 *
--------------------------------------------------------------------------------------------------------------------------------------------------------
Harbor seal (CA)........................................             732             941           1,360           1,674           2,197             575

[[Page 14327]]

 
California sea lion (U.S)...............................          24,787          31,869          46,032          56,655          74,360          19,012
Northern elephant seal (CA breeding)....................           3,370           4,333           6,259           7,703          10,111           4,947
Steller Sea Lion (Eastern)..............................              14              18              26              32              42              11
Northern fur seal (CA)..................................           1,190           1,530           2,210           2,721           3,571              26
Guadalupe fur seal (Mexico).............................              46              59              85             104             137              36
--------------------------------------------------------------------------------------------------------------------------------------------------------
* Based on sonic booms occurring during the period of validity for the rule (less than four months in 2024).


                    Table 13--Total Estimated Numbers of Marine Mammals, and Percentage of Marine Mammal Populations, Potentially Taken as a Result of the Planned Activities
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                                                                                           Highest
                                                                                                                                                         total take       Stock      Percentage
                          Species (stock)                               2019          2020          2021          2022          2023        2024 \1\    in a  single    abundance     of stock
                                                                                                                                                            year                      taken \2\
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Harbor seal (CA)..................................................        19,524        22,733        27,652        35,466        43,489        16,742        43,489        30,968       \3\ 7.1
California sea lion (U.S).........................................        28,187        36,019        51,307        63,805        83,385        21,756        83,385       257,606          32.4
Northern elephant seal (CA breeding)..............................         4,170         5,283         7,434         9,253        12,036         5,481        12,036       179,000           6.7
Steller Sea Lion (Eastern)........................................           134           168           221           302           387           105           387        52,139           0.7
Northern fur seal (CA)............................................         1,190         1,530         2,210         2,721         3,571            26         3,571        14,050          25.4
Guadalupe fur seal (Mexico).......................................            46            59            85           104           137            36           137        20,000           0.7
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
\1\ Take numbers shown reflect only the takes that would occur during the period of validity for the rule (January through March only in 2024).
\2\ Numbers of take authorized vary by year, therefore estimates shown for percentages of stock taken are based on takes authorized in 2023 which represent the highest take numbers authorized
  in any single year.
\3\ Take totals shown for harbor seals reflect the number of instances of harassment authorized. However, for purposes of determining the percent of stock taken, we use the number of
  individual animals estimated to be taken (2,188 per year). See further explanation in the section on ``small numbers'' below.

Mitigation

    Under Section 101(a)(5)(A) 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 (``least practicable adverse impact''). NMFS does not 
have a regulatory definition for ``least practicable adverse impact.'' 
However, NMFS's implementing regulations require applicants for 
incidental take authorizations to include information about the 
availability and feasibility (economic and technological) of equipment, 
methods, and manner of conducting such activity or other means of 
effecting the least practicable adverse impact upon the affected 
species or stocks and their habitat (50 CFR 216.104(a)(11)).
    In evaluating how mitigation may or may not be appropriate to 
ensure the least practicable adverse impact on species or stocks and 
their habitat, we carefully consider two primary factors:
    (1) The manner in which, and the degree to which, implementation of 
the measure(s) is expected to reduce impacts to marine mammal species 
or stocks, their habitat, and their availability for subsistence uses. 
This analysis will consider such things as the nature of the potential 
adverse impact (such as likelihood, scope, and range), the likelihood 
that the measure will be effective if implemented, and the likelihood 
of successful implementation.
    (2) The practicability of the measure for applicant implementation. 
Practicability of implementation may consider such things as cost, 
impact on operations, personnel safety, and practicality of 
implementation.

Launch Mitigation

    For missile and rocket launches, unless constrained by other 
factors (including, but not limited to, human safety, national security 
concerns or launch trajectories), launches will be scheduled to avoid 
the harbor seal pupping season (e.g., March through June) when 
feasible. The USAF will also avoid, whenever possible, launches which 
are predicted to produce a sonic boom on the NCI during the harbor seal 
pupping season (e.g., March through June).

Aircraft Operation Mitigation

    All aircraft and helicopter flight paths must maintain a minimum 
distance of 1,000 ft (305 m) from recognized seal haulouts and 
rookeries (e.g., Point Sal, Purisima Point, Rocky Point), except in 
emergencies or for real-time security incidents (i.e., search-and-
rescue, fire-fighting) and except for one area near the VAFB harbor 
over which aircraft may be flown to within 500 ft of a haulout. Except 
for take-off and landing actions, a minimum altitude of 300 feet must 
be maintained for Class 0-2 UAS over all known marine mammal haulouts 
when marine mammals are present. Class 3 UAS must maintain a minimum 
altitude of 500 feet, except at take-off and landing. A minimum 
altitude of 1,000 feet must be maintained over haulouts for Class 4 or 
5 UAS.
    We have carefully evaluated the USAF's planned mitigation measures 
and considered a range of other measures in the context of ensuring 
that we prescribed the means of effecting the least practicable adverse 
impact on the affected marine mammal species and stocks and their 
habitat. Based on our evaluation of these measures, we have determined 
that these mitigation measures provide the means of effecting the least 
practicable adverse impact on marine mammal species or stocks and their 
habitat, paying particular attention to rookeries, mating grounds, and 
areas of similar significance, and on the availability of such species 
or stock for subsistence uses.

Monitoring and Reporting

    In order to issue an LOA for an activity, Section 101(a)(5)(A) of 
the

[[Page 14328]]

MMPA states that NMFS must set forth requirements pertaining to the 
monitoring and reporting of the authorized taking. NMFS's MMPA 
implementing regulations further describe the information that an 
applicant should provide when requesting an authorization (50 CFR 
216.104(a)(13)), including the means of accomplishing the necessary 
monitoring and reporting that will result in increased knowledge of the 
species and the level of taking or impacts on populations of marine 
mammals.
    Monitoring and reporting requirements prescribed by NMFS should 
contribute to improved understanding of one or more of the following:
     Occurrence of significant interactions with marine mammal 
species in action area (e.g., animals that came close to the vessel, 
contacted the gear, or are otherwise rare or displaying unusual 
behavior).
     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 marine mammal responses (behavioral or 
physiological) to acoustic stressors (acute, chronic, or cumulative), 
other stressors, or cumulative impacts from multiple stressors.
     How anticipated responses to stressors impact either: (1) 
Long-term fitness and survival of individual marine mammals; or (2) 
populations, species, or stocks.
     Effects on marine mammal habitat (e.g., marine mammal prey 
species, acoustic habitat, or important physical components of marine 
mammal habitat).
     Mitigation and monitoring effectiveness.
    The USAF proposed a suite of monitoring measures on both VAFB and 
the NCI to document impacts of the specified activities on marine 
mammals. These monitoring measures are described below.

Monitoring at VAFB

    Monitoring requirements for launches and landings at VAFB are 
dependent on the season and on the type of rocket or missile being 
launched (or landed in the case of the Falcon 9) (Table 14). Acoustic 
and biological monitoring at VAFB are required for all rocket types 
during the harbor seal and elephant seal pupping seasons at VAFB (e.g., 
January 1 through July 31) to ensure that responses of pups to the 
specified activities are monitored and recorded. Acoustic and 
biological monitoring at VAFB are also required for all launches of any 
space launch vehicle types that have not been previously monitored 
three times, for any space launch vehicle types that have been 
previously monitored but for which the launch is predicted to be louder 
than previous launches of that rocket type (based on modeling by USAF) 
and, for new types of missiles, regardless of the time of year. Falcon 
9 First Stage recovery activities (i.e., boost-back and landings) with 
sonic booms that have a predicted psf of >1.0 on VAFB (based on sonic 
boom modeling performed prior to launch) must be monitored (including 
biological and acoustic monitoring) at VAFB, at any time of year.

                  Table 14--Monitoring Measures at VAFB
------------------------------------------------------------------------
               Dates                   Monitoring requirement on VAFB
------------------------------------------------------------------------
Year round........................   Launches of new space
                                     launch vehicles that have not been
                                     monitored 3 previous times.
                                     Launches of existing space
                                     launch vehicles that are expected
                                     to be louder than previous launches
                                     of the same vehicle type.
                                     Launches of new types of
                                     missiles that have not been
                                     monitored 3 previous times.
                                     Falcon 9 First Stage
                                     recoveries with a predicted psf of
                                     >1.0 on VAFB.
Jan 1-July 31.....................   Launches and recoveries of
                                     all space launch vehicles.
------------------------------------------------------------------------

    Marine mammal monitoring at VAFB must be conducted by at least one 
NMFS-approved marine mammal observer trained in marine mammal science. 
Authorized marine mammal observers must have demonstrated proficiency 
in the identification of all age and sex classes of both common and 
uncommon pinniped species found at VAFB and must be knowledgeable of 
approved count methodology and have experience in observing pinniped 
behavior, especially in response to human disturbances.
    Monitoring at the haulout site closest to the facility where the 
space launch vehicle will be launched must begin at least 72 hours 
prior to the launch and must continue until at least 48 hours after the 
launch. Monitoring for each launch must include multiple surveys during 
each day of monitoring (typically between 4-6 surveys per day) that 
will record: Species, number, general behavior, presence of pups, age 
class, gender, and reaction to launch noise, or to natural or other 
human-caused disturbances. Environmental conditions will also be 
recorded, including: Visibility, air temperature, clouds, wind speed 
and direction, tides, and swell height and direction.
    For launches that occur during the elephant seal and harbor seal 
pupping seasons (January 1 through July 31) a follow-up survey must be 
conducted within two weeks of the launch to monitor for any potential 
adverse impacts to pups. For launches that occur during daylight, time-
lapse photo and/or video recordings will occur during launch, as marine 
mammal observers are not allowed to be present within the launch area 
or at haulouts on VAFB at the time of launch for safety reasons. The 
USAF will also use night video monitoring to record responses of 
pinnipeds to launches that occur in darkness, when feasible. Night 
video monitoring may not be practical depending on whether technology 
is available that can reliably and remotely record responses of 
pinnipeds at remote haulout locations.
    In addition to monitoring pinniped responses to the planned 
activities on VAFB, the USAF will continue to conduct monthly marine 
mammal surveys on VAFB. Monthly surveys have been carried out at VAFB 
for several years and have provided valuable data on abundance, habitat 
use, and seasonality of pinnipeds on VAFB. The goals of the monthly 
surveys include assessing haulout patterns and relative abundance over 
time, resulting in improved understanding of pinniped population trends 
at VAFB and better enabling assessment of potential long-term impacts 
of USAF operations. When possible, these surveys will be timed to 
coincide with the lowest afternoon tides

[[Page 14329]]

of each month, when the greatest numbers of animals are typically 
hauled out. During the monthly surveys, a NMFS-approved observer will 
record: Species, number, general behavior, presence of pups, age class, 
gender, and any reactions to natural or human-caused disturbances. 
Environmental conditions will also be recorded, including: Visibility, 
air temperature, clouds, wind speed and direction, tides, and swell 
height and direction.

Monitoring at the NCI

    As described previously, sonic booms are the only stimuli 
associated with the planned activities that have the potential to 
result in harassment of marine mammals on the NCI. As pinniped 
responses on the NCI are dependent on the species and on the intensity 
of the sonic boom (Table 7), requirements for monitoring on the NCI 
vary by season and depend on the expected sonic boom level and the 
pupping seasons of the species expected to be present. Sonic boom 
modeling will be performed prior to all rocket launches and Falcon 9 
recoveries. Acoustic and biological monitoring must be conducted on the 
NCI if the sonic boom model indicates that pressures from a sonic boom 
are expected to reach or exceed the levels shown in Table 15. These 
dates have been determined based on seasons when pups may be present 
for the species that are most responsive to sonic booms on the NCI 
based on several years of monitoring data (e.g., harbor seals and 
California sea lions) (Table 7).

  Table 15--Monitoring Requirements on the Northern Channel Islands by
                                 Season
------------------------------------------------------------------------
     Sonic boom  level  (modeled)                    Dates
------------------------------------------------------------------------
>2 psf...............................  March 1--July 31.
>3 psf...............................  August 1--September 30.
>4 psf...............................  October 1--February 28.
------------------------------------------------------------------------

    Marine mammal monitoring and acoustic monitoring will be conducted 
at the closest significant haulout site to the modeled sonic boom 
impact area. The monitoring site will be selected based upon the model 
results, with emphasis placed on selecting a location where the maximum 
sound pressures are predicted and where pinnipeds are expected to be 
present that are considered most sensitive in terms of responses to 
sonic booms. Monitoring the responses of mother-pup pairs of any 
species will also be prioritized. Given the large numbers of pinnipeds 
found on some island beaches, smaller focal groups will be monitored. 
Estimates of the numbers of pinnipeds present on the entire beach will 
be made and their reactions to the launch noise will be documented. 
Specialized acoustic instruments will also be used to record sonic 
booms at the marine mammal monitoring location.
    Monitoring must be conducted by at least one NMFS-approved marine 
mammal observer, trained in marine mammal science. Monitors must be 
deployed to the monitoring location before, during and after the 
launch, with monitoring commencing at least 72 hours prior to the 
launch, occurring during the launch and continuing until 48 hours after 
the launch (unless no sonic boom is detected by the monitors during the 
launch and/or by the acoustic recording equipment, at which time 
monitoring would be discontinued). If the launch occurs in darkness, 
night-vision equipment will be used, when feasible. The USAF will also 
conduct video monitoring, including the use of night video monitoring, 
when feasible (video monitoring is not always effective due to 
conditions such as fog, glare, and a lack of animals within view from a 
single observation point). During the pupping season of any species 
potentially affected by a sonic boom, a follow-up survey must occur 
within two weeks of the launch to assess any potential adverse effects 
on pups.
    Monitoring for each launch must include multiple surveys each day 
that record, when possible: Species, number, general behavior, presence 
of pups, age class, gender, and reaction to sonic booms or natural or 
human-caused disturbances. Remarks will be recorded, such as the nature 
and cause of any natural or human-related disturbance, including 
response to the sonic boom. When flushing behavior is observed, the 
amount of time it takes for hauled out animals to return to the beach 
will be recorded, if length of recording allows. Number of marine 
mammals hauled out will be recorded immediately prior to the launch, 
when feasible. Environmental conditions will also be recorded, 
including: Visibility, air temperature, clouds, wind speed and 
direction, tides, and swell height and direction.
    The USAF has complied with the monitoring requirements under the 
previous LOAs issued from 2013 through 2018.

Reporting

    Reporting requirements include launch monitoring reports submitted 
after each launch and annual reports describing all activities 
conducted at VAFB that are covered under this rule during each year.
    A launch monitoring report containing the following information 
must be submitted to NMFS within 90 days after each rocket launch: 
Species present, number(s), general behavior, presence of pups, age 
class, gender, numbers of pinnipeds present on the haulout prior to 
commencement of the launch, numbers of pinnipeds that responded at a 
level that would be considered harassment (based on the description of 
responses in Table 8), length of time(s) pinnipeds remained off the 
haulout (for pinnipeds that flushed), and any behavioral responses by 
pinnipeds that were likely in response to the specified activities, 
including in response to launch noise or sonic boom. Launch reports 
must also include date(s) and time(s) of each launch (and sonic boom, 
if applicable); date(s) and location(s) of marine mammal monitoring, 
and environmental conditions including: Visibility, air temperature, 
clouds, wind speed and direction, tides, and swell height and 
direction. If a dead or seriously injured pinniped is found during 
post-launch monitoring, the incident must be reported to the NMFS 
Office of Protected Resources and the NMFS West Coast Regional Office 
immediately. Results of acoustic monitoring, including the recorded 
sound levels associated with the launch and/or sonic boom (if 
applicable) will also be included in the report.
    An annual report must be submitted to NMFS by March 1 of each year 
that summarizes the data reported in all launch reports for the 
previous calendar year (as described above) including a summary of 
documented numbers of instances of harassment incidental to the 
specified activities. Annual reports must also describe any documented 
takings incidental to the specified activities not included in the 
launch reports (e.g., takes incidental to UAS operations).
    A final comprehensive report must be submitted to NMFS no later 
than 180 days prior to expiration of these regulations. This report 
must summarize the findings made in all previous reports and assess 
both the impacts at each of the major rookeries and an assessment of 
any cumulative impacts on marine mammals from the specified activities.
    The USAF has complied with the reporting requirements under the 
previous LOAs issued from 2013 through 2018.

[[Page 14330]]

Negligible Impact Analysis and Determination

    NMFS has defined negligible impact 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 (50 CFR 216.103). A 
negligible impact finding is based on the lack of likely adverse 
effects on annual rates of recruitment or survival (i.e., population-
level effects). An estimate of the number of 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 harassment, NMFS considers 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 effects on habitat, and the likely effectiveness 
of the mitigation. We also assess the number, intensity, and context of 
estimated takes by evaluating this information relative to population 
status. 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 this 
analysis via their impacts on the environmental baseline (e.g., as 
reflected in the regulatory status of the species, population size and 
growth rate where known, ongoing sources of human-caused mortality, or 
ambient noise levels).
    To avoid repetition, the discussion of our analyses applies to all 
the species listed in Table 5, given that the anticipated effects of 
this activity on these different marine mammal species are expected to 
be similar. Activities associated with the planned activities, as 
outlined previously, have the potential to disturb or displace marine 
mammals. Specifically, the specified activities may result in take, in 
the form of Level B harassment (behavioral disturbance) only, from 
airborne sounds of rocket launches and sonic booms and from sounds or 
visual stimuli associated with aircraft. Based on the best available 
information, including monitoring reports from similar activities that 
have been authorized by NMFS, behavioral responses will likely be 
limited to reactions such as alerting to the noise, with some animals 
possibly moving toward or entering the water, depending on the species 
and the intensity of the sonic boom or launch noise. Repeated exposures 
of individuals to levels of sound that may cause Level B harassment are 
unlikely to result in hearing impairment or to significantly disrupt 
foraging behavior. Thus, even repeated instances of Level B harassment 
of some small subset of an overall stock is unlikely to result in any 
significant realized decrease in fitness to those individuals, and thus 
would not result in any adverse impact to the stock as a whole. Level B 
harassment would be reduced to the level of least practicable adverse 
impact through use of mitigation measures described above.
    Harbor seals, northern elephant seals, and California sea lions 
breed and pup on VAFB, while harbor seals, northern elephant seals, 
California sea lions and northern fur seals breed and pup on the 
Channel Islands. San Miguel Island represents the most important 
pinniped rookery in the lower 48 states, and as such, extensive 
research has been conducted there for over two decades, by the USAF as 
well as by NOAA and independent researchers. From this research, as 
well as stock assessment reports, it is clear that VAFB operations 
(including associated sonic booms) have not had any significant impacts 
on the numbers of animals observed at San Miguel Island rookeries and 
haulouts and that rocket launches have not resulted in pup abandonment 
or mortality, nor the abandonment of breeding and pupping habitat (SAIC 
2012). Likewise, for the instances of pinnipeds being behaviorally 
disturbed by sonic booms from rocket launches at VAFB, no evidence has 
been presented of abnormal behavior, injuries or mortalities, in pup 
abandonment or mortality, nor the abandonment of breeding and pupping 
habitat as a result of launch-related activities (SAIC 2013, CEMML 
2018). As an example, a total of eight Delta II and Taurus space 
vehicle launches occurred from north VAFB, near the Spur Road and 
Purisima Point haulout sites, from February, 2009 through February, 
2014. Of these eight launches, three occurred during the harbor seal 
pupping season. The continued use by harbor seals of the Spur Road and 
Purisima Point haulout sites indicates that it is unlikely that these 
rocket launches (and associated sonic booms) resulted in long-term 
disturbances of pinnipeds using the haulout sites.
    Post-launch monitoring generally reveals a return to normal 
behavioral patterns within minutes up to an hour or two of each launch, 
regardless of species. The number of California sea lions documented on 
VAFB via monthly marine mammal surveys increased substantially in 2017 
compared to the numbers recorded in previous years, and northern 
elephant seal pupping was documented on VAFB for the first time in 
2017, providing further evidence that the USAF's activities, which are 
ongoing, have not negatively impacted annual rates of recruitment or 
survival. In addition, the USAF will avoid launches, when feasible, 
during pupping seasons for the species that have been shown through 
monitoring to be the most sensitive to the stimuli associated with the 
USAF's activities. Based on the best available information, including 
over two decades' worth of survey data, we do not expect the authorized 
activities to result in impacts to breeding or pupping, or to 
negatively impact annual rates of recruitment or survival, for any 
marine mammal species.
    As described above, California sea lions and Guadalupe fur seals 
are currently experiencing UMEs. The California sea lion UME event has 
ended but the UME has not been officially closed by NMFS. Strandings of 
Guadalupe fur seals associated with the Guadalupe fur seals UME have 
steadily declined since 2015, but the UME remains active. As described 
above, the USAF's activities are expected to result in Level B 
harassment only, in the form of pinnipeds moving or possibly flushing 
to the water; no serious injury or mortality is expected or authorized 
and no pup abandonment or impacts to pupping habitat are expected to 
result. Based on the best available information, we do not expect the 
authorized activities will result in any adverse effects to pinnipeds 
that may be impacted by these UMEs, nor do we expect the authorized 
activities to compound the impacts of these UMEs in any way.
    In summary and as described above, the following factors primarily 
support our determination that the impacts resulting from this activity 
are not expected to adversely affect the species or stock through 
effects on annual rates of recruitment or survival:
     No injury, serious injury, or mortality are anticipated or 
authorized;
     The anticipated incidences of Level B harassment are 
expected to consist of, at worst, temporary modifications in behavior 
(i.e., short distance movements and occasional flushing into the water 
with return to haulouts within approximately 90 minutes), which are not 
expected to adversely affect the fitness of any individuals;
     The USAF's activities are expected to result in no pup 
abandonment or impacts to breeding and pupping, based on over 20 years 
of monitoring data;
     The USAF's activities are expected to result in no long-
term changes in the

[[Page 14331]]

use by pinnipeds of rookeries and haulouts in the project area, based 
on over 20 years of monitoring data; and
     The presumed efficacy of planned mitigation measures--
including the avoidance of launches, when feasible, during pupping 
seasons for the species most sensitive to the stimuli associated with 
the authorized activities--in reducing the effects of the specified 
activity to the level of least practicable adverse impact.
    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 monitoring and mitigation 
measures, NMFS finds that the total marine mammal take from the USAF's 
activity will have a negligible impact on all affected marine mammal 
species or stocks.

Small Numbers

    As noted above, only small numbers of incidental take may be 
authorized under Sections 101(a)(5)(A) and (D) of the MMPA for 
specified activities other than military readiness activities. The MMPA 
does not define small numbers and so, in practice, where estimated 
numbers are available, NMFS compares the number of individuals taken to 
the most appropriate estimation of abundance of the relevant species or 
stock in our determination of whether an authorization is limited to 
small numbers of marine mammals. Additionally, other qualitative 
factors may be considered in the analysis, such as the temporal or 
spatial scale of the activities.
    See Table 13 for information relating to this small numbers 
analysis (i.e., numbers of take authorized on an annual basis). We 
authorize the incidental take of individuals from 6 marine mammal 
stocks. The amount of taking authorized on an annual basis is less than 
one-third of the most appropriate abundance estimate for five of these 
species or stocks; therefore, the numbers of take authorized would be 
considered small relative to those relevant stocks or populations.
    The estimated number of instances of take for harbor seals exceeds 
the best available stock abundance. However, due to the nature of the 
specified activity--launch activities occurring at specific locations, 
rather than a mobile activity occurring throughout the stock range--the 
available information shows that only a portion of the stock would 
likely be impacted. It is important to note that the estimated number 
of expected takes represents instances of take and does not necessarily 
represent the number of individual animals expected to be taken, which 
is what is considered to make the small numbers determination. Multiple 
exposures to Level B harassment can accrue to the same individual 
animals over the course of an activity that occurs multiple times in 
the same area (such as the USAF's planned activities). This is 
especially likely in the case of species that have limited ranges and 
that have site fidelity to a location within the project area, as is 
the case with Pacific harbor seals.
    Harbor seals are non-migratory, rarely traveling more than 50 km 
from their haulout sites. Thus, while the estimated number of annual 
instances of take may not be considered small relative to the estimated 
abundance of the California stock of Pacific harbor seals of 30,968 
(Carretta et al. 2017), a substantially smaller number of individual 
harbor seals is expected to occur within the project area. We expect 
that, because of harbor seals' documented site fidelity to haulout 
locations at VAFB and the NCI, and because of their limited ranges, the 
same individual harbor seals are likely to be taken repeatedly over the 
course of the planned activities. Therefore, the number of instances of 
Level B harassment authorized for harbor seals per year over the 5-year 
period of validity of the regulations is expected to accrue to a much 
smaller number of individual harbor seals encompassing a small portion 
of the overall stock. Thus, while we authorize the instances of 
incidental take of harbor seals shown in Table 13, we believe that the 
number of individual harbor seals that will be incidentally taken by 
the USAF's activities will, in fact, be substantially lower than this 
number. We base the small numbers determination on the number of 
individuals taken versus the number of instances of take, as is 
appropriate when the information is available.
    To estimate the number of individual harbor seals expected to be 
taken by Level B harassment by the USAF's activities, we estimated the 
maximum number of individual harbor seals that could potentially be 
taken per activity (i.e., launch, landing, or aircraft activity), both 
on the NCI and at VAFB. As described above, due to harbor seals' 
limited ranges and site fidelity to haulout locations at VAFB and the 
NCI, we believe the maximum number of individual harbor seals that 
could be taken per activity (i.e., launch, landing, or aircraft 
activity) represents a conservative estimate of the number of 
individual harbor seals that would be taken over the course of a year. 
On VAFB, monthly marine mammal surveys conducted by the USAF represent 
the best available information on harbor seal abundance. The maximum 
number of harbor seals documented during monthly marine mammal surveys 
at VAFB in the years 2015, 2016 and 2017 was 821 seals (in October, 
2015). On the NCI, marine mammal surveys conducted from 2011-2015 
(Lowry et al., 2017) represents the best available information on 
harbor seal abundance. The maximum number of seals documented in 
surveys from 2011 through 2015 (the most recent information available) 
was 1,367 seals (in July, 2015) (Lowry et al., 2017). Therefore, we 
conservatively estimate that the maximum number of harbor seals that 
could potentially be taken per activity (i.e., lunch, landing, or 
aircraft activity) is 2,188 harbor seals, which represents the combined 
maximum number of seals expected to be present on the NCI and VAFB 
during any given activity. As we believe the same individuals are 
likely to be taken repeatedly over the duration of the planned 
activities, we use this estimate of 2,188 individual animals taken per 
activity (i.e., launch, landing, or aircraft activity) for the purposes 
of estimating the percentage of the stock abundance likely to be taken 
(7.1 percent).
    Based on the analysis contained herein of the USAF's activity 
(including the mitigation and monitoring measures) and the anticipated 
take of marine mammals, NMFS finds that small numbers of marine mammals 
will be taken relative to the population size of the affected species 
or stocks.

Unmitigable Adverse Impact Analysis and Determination

    There are no relevant subsistence uses of the affected marine 
mammal stocks or species implicated by this action. Therefore, NMFS has 
determined that the total taking of affected species or stocks would 
not have an unmitigable adverse impact on the availability of such 
species or stocks for taking for subsistence purposes.

Adaptive Management

    The regulations governing the take of marine mammals incidental to 
the USAF's activities at VAFB contain an adaptive management component.
    The reporting requirements associated with this rule are designed 
to provide NMFS with monitoring data from the previous year to allow 
consideration of whether any changes are appropriate. The use of 
adaptive management allows NMFS to consider new information from 
different sources to determine (with input from the USAF regarding 
practicability) on an annual or biennial basis if mitigation or 
monitoring

[[Page 14332]]

measures should be modified (including additions or deletions). 
Mitigation measures can be modified if new data suggests that such 
modifications would have a reasonable likelihood of reducing adverse 
effects to marine mammals and if the measures are practicable.
    The following are some of the possible sources of applicable data 
to be considered through the adaptive management process: (1) Results 
from monitoring reports, as required by MMPA authorizations; (2) 
results from general marine mammal and sound research; and (3) any 
information which reveals that marine mammals may have been taken in a 
manner, extent, or number not authorized by these regulations or 
subsequent LOAs.

Endangered Species Act (ESA)

    Section 7(a)(2) of the Endangered Species Act of 1973 (ESA: 16 
U.S.C. 1531 et seq.) requires that each Federal agency insure that any 
action it authorizes, funds, or carries out is not likely to jeopardize 
the continued existence of any endangered or threatened species or 
result in the destruction or adverse modification of designated 
critical habitat. To ensure ESA compliance for the issuance of ITAs, 
NMFS consults internally, in this case with the NMFS West Coast Region 
Protected Resources Division Office, whenever we propose to authorize 
take for endangered or threatened species.
    There is one marine mammal species (Guadalupe fur seal) listed 
under the ESA with confirmed occurrence in the area expected to be 
impacted by the USAF's activities. NMFS OPR requested initiation of 
section 7 consultation with the NMFS West Coast Region Office (WCRO) on 
the promulgation of five-year regulations and the subsequent issuance 
of LOAs to the USAF under section 101(a)(5)(A) of the MMPA. On February 
15, 2019, WCRO issued a Letter of Concurrence concluding that OPR's 
action is not likely to adversely affect the Guadalupe fur seal.

National Environmental Policy Act

    To comply with the National Environmental Policy Act of 1969 (NEPA; 
42 U.S.C. 4321 et seq.) and NOAA Administrative Order (NAO) 216-6A, 
NMFS must evaluate our proposed action (i.e., the promulgation of 
regulations and subsequent issuance of incidental take authorization) 
and alternatives with respect to potential impacts on the human 
environment.
    This action is consistent with categories of activities identified 
in Categorical Exclusion B4 of the Companion Manual for NAO 216-6A, 
which do not individually or cumulatively have the potential for 
significant impacts on the quality of the human environment and for 
which we have not identified any extraordinary circumstances that would 
preclude this categorical exclusion. Accordingly, NMFS has determined 
that the proposed action qualifies to be categorically excluded from 
further NEPA review.

Classification

    Pursuant to the procedures established to implement Executive Order 
12866, the Office of Management and Budget has determined that this 
rule is not significant.
    Pursuant to section 605(b) of the Regulatory Flexibility Act (RFA), 
the Office of General Counsel for the U.S. Department of Commerce 
certified to the Chief Counsel for Advocacy of the Small Business 
Administration at the proposed rule stage that this action would not 
have a significant economic impact on a substantial number of small 
entities. The USAF is the sole entity that would be subject to the 
requirements in these regulations, and the USAF is not a small 
governmental jurisdiction, small organization, or small business, as 
defined by the RFA (SpaceX activities are included in these 
regulations, however all SpaceX activities considered in these 
regulations originate at VAFB and the takes of marine mammals 
authorized via these regulations and the subsequent LOA are authorized 
solely to USAF for activities originating at VAFB). No comments were 
received regarding this certification. As a result, a regulatory 
flexibility analysis is not required and none has been prepared.
    Notwithstanding any other provision of law, no person is required 
to respond to nor shall a person be subject to a penalty for failure to 
comply with a collection of information subject to the requirements of 
the Paperwork Reduction Act (PRA) unless that collection of information 
displays a currently valid OMB control number. However, this rule does 
not contain a collection-of-information requirement subject to the 
provisions of the PRA because the applicant is a Federal agency.

Waiver of Delay in Effective Date

    The Assistant Administrator for NMFS has determined that there is 
good cause under the Administrative Procedure Act (5 U.S.C. 553(d)(3)) 
to waive the 30-day delay in the effective date of this final rule. No 
individual or entity other than USAF and SpaceX is affected by the 
provisions of these regulations. USAF has informed NMFS that it 
requests that this final rule take effect as soon as is possible so as 
to avoid the potential for disruption in the USAF's planned activities, 
given that the previous regulations and LOA issued to USAF for 
activities at VAFB expired March 26, 2019. NMFS was unable to 
accommodate the 30-day delay of effectiveness period due to the need 
for additional time to address public comment and carry out required 
review, which was delayed by the lapse in federal appropriations in 
December 2018 and January 2019. The waiver of the 30-day delay of the 
effective date of the final rule will ensure that the MMPA final rule 
and LOA are finalized as soon as is possible to avoid the potential for 
disruption in the USAF's planned activities.
    Any delay in finalizing the rule could result in either: (1) A 
suspension of USAF's planned rocket and missile launch activities, 
which would have potential implications for national security, or (2) 
USAF's non-compliance with the MMPA (should USAF conduct launch 
activities without a valid LOA), thereby resulting in the potential for 
unauthorized takes of marine mammals. This rule supports Department of 
Defense (DoD)/USAF functions, and harm to those functions will occur if 
publication of this proposed rule is delayed. The rule ensures the USAF 
is in compliance with the MMPA for functions designated as ``military 
readiness'' activities, which are defined as ``(A) all training and 
operations of the Armed Forces that relate to combat; and (B) the 
adequate and realistic testing of military equipment, vehicles, 
weapons, and sensors for proper operation and suitability for combat 
use.'' Specifically, VAFB is a key location in the United States' 
Global Missile Defense program which has a crucial role in the 
potential interception of incoming ballistic missiles by supporting the 
development and testing activities of the Missile Defense Agency. In 
addition, rocket launches include National Reconnaissance Office and 
other agencies' payloads which directly support real-time military 
readiness for deployed combat personnel in all theaters. The activity 
covered by this rule also directly impacts the safety of human life and 
protection of property through impacts on national security, for which 
adequate testing and training, including these rocket and missile 
launches at VAFB, are necessary. Any delay in finalizing the rule would 
prevent or significantly damage the execution of these critical 
functions because the USAF could not conduct certain military 
readiness, support and monitoring activities in compliance

[[Page 14333]]

with the MMPA without the issuance of the rule. The MMPA rule covering 
these activities expired on March 26, 2019; a delay of 30 days prior to 
finalizing the rule would result in a further lapse in MMPA 
authorization for the critical activities described above. Moreover, 
USAF is ready to implement the rule immediately.
    In addition, the LOA allows for authorization of incidental take of 
marine mammals that would otherwise be prohibited under the statute. 
Therefore the rule is also granting an exception to USAF and relieving 
restrictions under the MMPA. For these reasons, NMFS finds good cause 
to waive the 30-day delay in the effective date.

List of Subjects in 50 CFR Part 217

    Exports, Fish, Imports, Marine mammals, Reporting and recordkeeping 
requirements, Transportation.

    Dated: April 3, 2019.
Samuel D. Rauch, III,
Deputy Assistant Administrator for Regulatory Programs, National Marine 
Fisheries Service.

    For reasons set forth in the preamble, 50 CFR part 217 is amended 
as follows:

PART 217--REGULATIONS GOVERNING THE TAKING AND IMPORTING OF MARINE 
MAMMALS

0
1. The authority citation for part 217 continues to read as follows:

    Authority: 16 U.S.C. 1361 et seq.


0
2. Add subpart G to read as follows:
Subpart G--Taking and Importing Marine Mammals; Taking Marine Mammals 
Incidental to U.S. Air Force Launches and Operations at Vandenberg Air 
Force Base, California
Sec.
217.60 Specified activity and specified geographical region.
217.61 Effective dates.
217.62 Permissible methods of taking.
217.63 Prohibitions.
217.64 Mitigation requirements.
217.65 Requirements for monitoring and reporting.
217.66 Letters of Authorization.
217.67 Renewals and modifications of Letters of Authorization.
217.68-217.69 [Reserved]

Subpart G--Taking and Importing Marine Mammals; Taking Marine 
Mammals Incidental to U.S. Air Force Launches and Operations at 
Vandenberg Air Force Base, California


Sec.  217.60   Specified activity and specified geographical region.

    (a) Regulations in this subpart apply only to the 30th Space Wing, 
United States Air Force (USAF) and those persons it authorizes to 
conduct activities on its behalf for the taking of marine mammals that 
occurs in the areas outlined in paragraph (b) of this section and that 
occurs incidental to rocket and missile launches and aircraft 
operations.
    (b) The taking of marine mammals by the USAF may be authorized in a 
Letter of Authorization (LOA) only if it occurs from activities 
originating at Vandenberg Air Force Base.


Sec.  217.61   Effective dates.

    Regulations in this subpart are effective from April 10, 2019, 
until April 10, 2024.


Sec.  217.62   Permissible methods of taking.

    (a) Under an LOA issued pursuant to Sec. Sec.  216.106 and 217.60 
of this chapter, the Holder of the LOA (herein after ``USAF'') may 
incidentally, but not intentionally, take marine mammals by Level B 
harassment, within the area described in Sec.  217.60(b), provided the 
activity is in compliance with all terms, conditions, and requirements 
of the regulations in this subpart and the appropriate LOA.


Sec.  217.63   Prohibitions.

    Notwithstanding takings contemplated in Sec.  217.62(c) and 
authorized by an LOA issued under Sec. Sec.  216.106 and 217.66 of this 
chapter, no person in connection with the activities described in Sec.  
217.60 may:
    (a) Violate, or fail to comply with, the terms, conditions, and 
requirements of this subpart or an LOA issued under Sec. Sec.  216.106 
of this chapter and 217.66;
    (b) Take any marine mammal not specified in such LOAs;
    (c) Take any marine mammal specified in such LOAs in any manner 
other than as specified;
    (d) Take a marine mammal specified in such LOAs if NMFS determines 
such taking results in more than a negligible impact on the species or 
stocks of such marine mammal; or
    (e) Take a marine mammal specified in such LOAs if NMFS determines 
such taking results in an unmitigable adverse impact on the species or 
stock of such marine mammal for taking for subsistence uses.


Sec.  217.64   Mitigation requirements.

    When conducting the activities identified in Sec.  217.60(a), the 
mitigation measures contained in any Letter of Authorization issued 
under Sec. Sec.  216.106 of this chapter and 217.66 must be 
implemented. These mitigation measures include (but are not limited 
to):
    (a) For missile and rocket launches, the USAF must avoid, whenever 
possible, launches during the harbor seal pupping season of March 
through June, unless constrained by factors including, but not limited 
to, human safety, national security, or launch mission objectives.
    (b) For rocket launches, the USAF must avoid, whenever possible, 
launches which are predicted to produce a sonic boom on the Northern 
Channel Islands from March through June.
    (c) Aircraft and helicopter flight paths must maintain a minimum 
distance of 1,000 feet (ft) (305 meters (m)) from recognized pinniped 
haulouts and rookeries, whenever possible, except for one area near the 
VAFB harbor over which aircraft may be flown to within 500 ft of a 
haulout, and except in emergencies or for real-time security incidents, 
which may require approaching pinniped haulouts and rookeries closer 
than 1,000 ft (305 m).
    (d) Except for during take-off and landing actions, the following 
minimum altitudes must be maintained over all known marine mammal 
haulouts when marine mammals are present: For Class 0-2 UAS, a minimum 
of 300 ft; for Class 3 UAS, a minimum of 500 ft; and for Class 4 or 5 
UAS, a minimum of 1,000 ft.
    (e) If post-launch surveys determine that an injurious or lethal 
take of a marine mammal has occurred, the launch procedure and the 
monitoring methods must be reviewed, in cooperation with the National 
Marine Fisheries Service (NMFS), and appropriate changes must be made 
through modification to a Letter of Authorization, prior to conducting 
the next launch under that Letter of Authorization.


Sec.  217.65   Requirements for monitoring and reporting.

    (a) To conduct monitoring of rocket launch activities, the USAF 
must either use video recording, or must designate a qualified on-site 
individual approved in advance by NMFS, with demonstrated proficiency 
in the identification of all age and sex classes of both common and 
uncommon pinniped species found at VAFB and knowledge of approved count 
methodology and experience in observing pinniped behavior, as specified 
in the Letter of Authorization, to monitor and document pinniped 
activity as described below:
    (1) For any launches of space launch vehicles or recoveries of the 
Falcon 9 First Stage occurring from January 1 through July 31, pinniped 
activity at

[[Page 14334]]

VAFB must be monitored in the vicinity of the haulout nearest the 
launch platform, or, in the absence of pinnipeds at that location, at 
another nearby haulout, for at least 72 hours prior to any planned 
launch, and continue for a period of time not less than 48 hours 
subsequent to the launch;
    (2) For any launches of new space launch vehicles that have not 
been monitored during at least 3 previous launches occurring from 
August 1 through December 31, pinniped activity at VAFB must be 
monitored in the vicinity of the haulout nearest the launch or landing 
platform, or, in the absence of pinnipeds at that location, at another 
nearby haulout, for at least 72 hours prior to any planned launch, and 
continue for a period of time not less than 48 hours subsequent to 
launching;
    (3) For any launches of existing space launch vehicles that are 
expected to result in a louder launch noise or sonic boom than previous 
launches of the same vehicle type occurring from August 1 through 
December 31, pinniped activity at VAFB must be monitored in the 
vicinity of the haulout nearest the launch or landing platform, or, in 
the absence of pinnipeds at that location, at another nearby haulout, 
for at least 72 hours prior to any planned launch, and continue for a 
period of time not less than 48 hours subsequent to launching;
    (4) For any launches of new types of missiles occurring from August 
1 through December 31, pinniped activity at VAFB must be monitored in 
the vicinity of the haulout nearest the launch or landing platform, or, 
in the absence of pinnipeds at that location, at another nearby 
haulout, for at least 72 hours prior to any planned launch, and 
continue for a period of time not less than 48 hours subsequent to 
launching;
    (5) For any recoveries of the Falcon 9 First Stage occurring from 
August 1 through December 31 that are predicted to result in a sonic 
boom of 1.0 pounds per square foot (psf) or above at VAFB, pinniped 
activity at VAFB must be monitored in the vicinity of the haulout 
nearest the launch or landing platform, or, in the absence of pinnipeds 
at that location, at another nearby haulout, for at least 72 hours 
prior to any planned launch, and continue for a period of time not less 
than 48 hours subsequent to launching;
    (6) For any launches or Falcon 9 First Stage recoveries occurring 
from January 1 through July 31, follow-up surveys must be conducted 
within 2 weeks of the launch;
    (7) For any launches or Falcon 9 First Stage recoveries, pinniped 
activity at the Northern Channel Islands must be monitored, if it is 
determined by modeling that a sonic boom of greater than 2.0 psf is 
predicted to impact one of the islands between March 1 and July 31, 
greater than 3.0 psf between August 1 and September 30, and greater 
than 4.0 psf between October 1 and February 28. Monitoring will be 
conducted at the haulout site closest to the predicted sonic boom 
impact area, or, in the absence of pinnipeds at that location, at 
another nearby haulout;
    (8) For any launches or Falcon 9 First Stage recoveries for which 
marine mammal monitoring is required, acoustic measurements must be 
made; and
    (9) Marine mammal monitoring must include multiple surveys each day 
that record the species, number of animals, general behavior, presence 
of pups, age class, gender and reaction to launch noise, sonic booms or 
other natural or human caused disturbances, in addition to recording 
environmental conditions such as tide, wind speed, air temperature, and 
swell. Number of marine mammals hauled out must be recorded immediately 
prior to the launch, unless weather conditions prevent accurate 
recording or it is technologically infeasible. When flushing behavior 
is observed, the amount of time for animals to return to the haulout 
must be recorded.
    (10) Marine mammal monitoring of activities that occur during 
darkness at VAFB must include night video monitoring, when feasible.
    (b) The USAF must submit a report to the Administrator, West Coast 
Region, NMFS, and Office of Protected Resources, NMFS, within 90 days 
after each launch. This report must contain the following information:
    (1) Date(s) and time(s) of the launch;
    (2) Design of the monitoring program; and
    (3) Results of the monitoring program, including, but not 
necessarily limited to:
    (i) Numbers of pinnipeds present on the haulout prior to 
commencement of the launch;
    (ii) Numbers of pinnipeds that may have been harassed as noted by 
the number of pinnipeds estimated to have moved in response to the 
source of disturbance, ranging from short withdrawals at least twice 
the animal's body length to longer retreats over the beach, or if 
already moving a change of direction of greater than 90 degree, or, 
entered the water as a result of launch noise;
    (iii) For any marine mammals that entered the water, the length of 
time they remained off the haulout;
    (iv) Description of behavioral modifications by pinnipeds that were 
likely the result of launch noise or sonic boom; and
    (v) Results of acoustic monitoring, including the intensity of any 
sonic boom (psf) and sound levels in SELs, SPLpeak and 
SPLrms.
    (c) If the authorized activity identified in Sec.  217.60(a) is 
thought to have resulted in the mortality or injury of any marine 
mammals or in any take of marine mammals not authorized in LOAs, then 
the USAF must notify the Director, Office of Protected Resources, NMFS, 
and the stranding coordinator, West Coast Region, NMFS, within 48 hours 
of the discovery of the injured or dead marine mammal or of the take of 
marine mammals not authorized in an LOA.
    (d) An annual report must be submitted on March 1 of each year to 
the Office of Protected Resources, NMFS.
    (e) A final report must be submitted at least 180 days prior to 
expiration of these regulations to the Office of Protected Resources, 
NMFS. This report will:
    (1) Summarize the activities undertaken and the results reported in 
all previous reports;
    (2) Assess the impacts at each of the major rookeries;
    (3) Assess the cumulative impacts on pinnipeds and other marine 
mammals from the activities specified in Sec.  217.60(a); and
    (4) State the date(s), location(s), and findings of any research 
activities related to monitoring the effects on launch noise, sonic 
booms, and harbor activities on marine mammal populations.


Sec.  217.66   Letters of Authorization.

    (a) To incidentally take marine mammals pursuant to these 
regulations, the USAF must apply for and obtain an LOA.
    (b) An LOA, unless suspended or revoked, may be effective for a 
period of time not to exceed the expiration date of these regulations.
    (c) If an LOA expires prior to the expiration date of these 
regulations, the USAF may apply for and obtain a renewal of the LOA.
    (d) In the event of projected changes to the activity or to 
mitigation and monitoring measures required by an LOA, the USAF must 
apply for and obtain a modification of the LOA as described in Sec.  
217.67.
    (e) The LOA will set forth:
    (1) Permissible methods of incidental taking;
    (2) Means of effecting the least practicable adverse impact (i.e.,

[[Page 14335]]

mitigation) on the species, its habitat, and on the availability of the 
species for subsistence uses; and
    (3) Requirements for monitoring and reporting.
    (f) Issuance of the LOA shall be based on a determination that the 
level of taking will be consistent with the findings made for the total 
taking allowable under these regulations.
    (g) Notice of issuance or denial of an LOA shall be published in 
the Federal Register within 30 days of a determination.


Sec.  217.67   Renewals and modifications of Letters of Authorization.

    (a) An LOA issued under Sec. Sec.  216.106 of this chapter and 
217.66 for the activity identified in Sec.  217.60(a) shall be renewed 
or modified upon request by the applicant, provided that:
    (1) The specified activity and mitigation, monitoring, and 
reporting measures, as well as the anticipated impacts, are the same as 
those described and analyzed for these regulations (excluding changes 
made pursuant to the adaptive management provision in Sec.  
217.67(c)(1)); and
    (2) NMFS determines that the mitigation, monitoring, and reporting 
measures required by the previous LOA under these regulations were 
implemented.
    (b) For LOA modification or renewal requests by the applicant that 
include changes to the activity or the mitigation, monitoring, or 
reporting (excluding changes made pursuant to the adaptive management 
provision in Sec.  217.67(c)(1)) that do not change the findings made 
for the regulations or result in no more than a minor change in the 
total estimated number of takes (or distribution by species or years), 
NMFS may publish a notice of proposed LOA in the Federal Register, 
including the associated analysis of the change, and solicit public 
comment before issuing the LOA.
    (c) An LOA issued under Sec. Sec.  216.106 of this chapter and 
217.66 for the activity identified in Sec.  217.60(a) may be modified 
by NMFS under the following circumstances:
    (1) Adaptive Management--NMFS may modify (including augment) the 
existing mitigation, monitoring, or reporting measures (after 
consulting with the USAF regarding the practicability of the 
modifications) if doing so creates a reasonable likelihood of more 
effectively accomplishing the goals of the mitigation and monitoring 
set forth in the preamble for these regulations.
    (i) Possible sources of data that could contribute to the decision 
to modify the mitigation, monitoring, or reporting measures in an LOA:
    (A) Results from the USAF's monitoring from the previous year(s).
    (B) Results from other marine mammal and/or sound research or 
studies.
    (C) Any information that reveals marine mammals may have been taken 
in a manner, extent or number not authorized by these regulations or 
subsequent LOAs.
    (ii) If, through adaptive management, the modifications to the 
mitigation, monitoring, or reporting measures are substantial, NMFS 
will publish a notice of proposed LOA in the Federal Register and 
solicit public comment.
    (2) Emergencies--If NMFS determines that an emergency exists that 
poses a significant risk to the well-being of the species or stocks of 
marine mammals specified in Sec.  217.62(c), an LOA may be modified 
without prior notice or opportunity for public comment. Notice would be 
published in the Federal Register within 30 days of the action.


Sec. Sec.  217.68-217.69   [Reserved]

[FR Doc. 2019-06918 Filed 4-9-19; 8:45 am]
 BILLING CODE 3510-22-P