Federal Register, Volume 84 Issue 118 (Wednesday, June 19, 2019)

[Federal Register Volume 84, Number 118 (Wednesday, June 19, 2019)]
[Notices]
[Pages 28462-28473]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-12989]

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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

RIN 0648-XG818

Takes of Marine Mammals Incidental To Specified Activities;
Taking Marine Mammals Incidental to U.S. Navy Target and Missile Launch
Activities on San Nicolas Island, California

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

ACTION: Notice; issuance of an incidental harassment authorization.

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SUMMARY: In accordance with the regulations implementing the Marine
Mammal Protection Act (MMPA) as amended, notification is hereby given
that NMFS has issued an incidental harassment authorization (IHA) to
the U.S. Navy (Navy) to incidentally harass, by Level B harassment
only, marine mammals during target and missile launch activities on San
Nicolas Island (SNI), California for the Naval Air Warfare Center
Weapons Division (NAWCWD), Point Mugu Sea Range (PMSR). The Navy's
activity is considered a military readiness activity pursuant to MMPA,
as amended by the National Defense Authorization Act (NDAA) for Fiscal
Year (FY) 2004.

DATES: This Authorization is effective from June 12, 2019 through June
11, 2020.

FOR FURTHER INFORMATION CONTACT: Stephanie Egger, Office of Protected
Resources, NMFS, (301) 427-8401. Electronic copies of the application
and supporting documents, as well as a list of the references cited in
this document, may be obtained online at: https://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.

SUPPLEMENTARY INFORMATION:

Background

The MMPA prohibits the ``take'' of marine mammals, with certain
exceptions. Sections 101(a)(5)(A) and (D) of the MMPA (16 U.S.C. 1361
et seq.) direct the Secretary of Commerce (as delegated to NMFS) 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 incidental take authorization may be provided to the public
for review.
Authorization for incidental takings shall be granted if NMFS finds
that the taking will have a negligible impact on the species or
stock(s) and will not have an unmitigable adverse impact on the
availability of the species or stock(s) for taking for subsistence uses
(where relevant). Further, NMFS must prescribe the permissible methods
of taking and other ``means of effecting the least

[[Page 28463]]

practicable adverse impact'' on the affected 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 stocks for taking for certain subsistence uses
(referred to in shorthand as ``mitigation''); and requirements
pertaining to the mitigation, monitoring and reporting of such takings
are set forth.
The NDAA for FY 2004 (Pub. L. 108-136) removed the ``small
numbers'' and ``specified geographical region'' limitations indicated
above and amended the definition of ``harassment'' as it applies to a
``military readiness activity.'' The activity for which incidental take
of marine mammals is being requested addressed here qualifies as a
military readiness activity. The definitions of all applicable MMPA
statutory terms cited above are included in the relevant sections
below.

Summary of Request

On December 13, 2018, NMFS received a request from the Navy for an
IHA to take marine mammals incidental to target and missile launch
activities on SNI. The application was deemed adequate and complete on
April 10, 2019. The Navy's requested take of California sea lions
(Zalophus californianus), harbor seals (Phoca vitulina), and northern
elephant seals (Mirounga angustirostris) by Level B harassment only.
Neither the Navy nor NMFS expects serious injury or mortality to result
from this activity and, therefore, an IHA is appropriate.
NMFS has previously issued incidental take authorizations to the
Navy for similar launch activities since 2001 with the current
authorization in effect until June 3, 2019 (79 FR 32678; June 6, 2014
and 79 FR 32919; June 9, 2014).

Description of the Specified Activity

The Navy plans to continue a target and missile launch program from
two launch sites on SNI for testing and training activities associated
with operations on the NAWCWD PMSR. SNI is one of the eight Channel
Islands in the Southern California Bight, located about 105 kilometers
(km) southwest of Point Mugu. The missiles are launched from one of
several fixed locations on the western end of SNI. Missiles launched
from SNI fly generally west, southwest, and northwest through the PMSR.
The primary launch locations are the Alpha Launch Complex, located 190
meters (m) above sea level on the west-central part of SNI and the
Building 807 Launch Complex, which accommodates several fixed and
mobile launchers, at the western end of SNI at approximately 11 m above
sea level. The Point Mugu airfield on the mainland, the airfield on
SNI, and the target sites in the PMSR will be a routine part of launch
operations.
Many of the beaches and rocky outcroppings around the perimeter of
SNI are pinniped resting, molting, or breeding sites. The Alpha Launch
Complex is approximately 2 km from the nearest beach where pinnipeds
are known to routinely haul out. The Building 807 Launch Complex is 30
m from the nearest pinniped haulout.
Missiles vary from tactical and developmental weapons to target
missiles used to test defensive strategies and other weapons systems.
Some launch events involve a single missile, while others involve the
launch of multiple missiles in quick succession. The Navy could conduct
up to 40 missile launch events from SNI, but the total may be less than
40 depending on operational requirements. Launch timing will be
determined by operational, meteorological, and logistical factors. Up
to 10 of the 40 launches may occur at night, but this is also dependent
on operational requirements and only conducted when required by test
objectives. Airborne sound from these launch events may result in take
of pinnipeds that are hauled out on SNI, by Level B harassment only.
All flights over SNI would be subsonic; therefore, there would be no
sonic booms that could affect pinnipeds hauled out at sites on SNI.
Missiles are rocket-propelled weapons designed to deliver an
explosive warhead with accuracy at high speed. Missiles vary from small
tactical weapons that are effective out to only a few hundred feet to
much larger strategic weapons that have ranges of several thousand
miles. Almost all missiles contain some form of guidance and control
mechanism and are therefore often referred to as guided missiles.
Guided missiles have four system components: Targeting or missile
guidance, flight system, engine, and warhead. A guided missile powered
along a low, level flight path by an air-breathing jet engine is called
a cruise missile. An unguided military missile, as well as any launch
vehicle, is usually referred to as a rocket. Tactical guided missiles
are generally categorized according to the location of the launch
platform and target and include: Air-to-air, air-to-surface, surface-
to-air, anti-ship, and anti-tank (or assault).
Further details of the Navy's launch activities are provided in the
Federal Register notice for the proposed IHA (84 FR 18809; May 2,
2019).

Comments and Responses

A notice of NMFS's proposal to issue an IHA to the Navy was
published in the Federal Register on May 2, 2019 (84 FR 18809). That
notice described, in detail, the Navy's activity, the marine mammal
species that may be affected by the activity, and the anticipated
effects on marine mammals. During the 30-day public comment period,
NMFS received comments from the Marine Mammal Commission (Commission).
For full details of the Commission's comments, please see their letter,
which is available online at: https://www.fisheries.noaa.gov/national/marine-mammal-protection/incidental-take-authorizations-construction-activities. Summaries of the Commission's comments, and our responses,
are provided below.

In-Air Thresholds

Comment: The Commission comments on many aspects of this IHA
related to in-air thresholds. The Commission claimed that the
thresholds for TTS/PTS stipulated in the Navy's Criteria and Thresholds
for U.S. Navy Acoustic and Explosive Effects Analysis (Phase III)
Technical Report (U.S. Department of the Navy, 2017) were incorrect and
that revised thresholds presented in Southall et al., 2019 should be
used. The Commission comments that the historical behavioral thresholds
of 90 dB SPL for harbor seals/100 dB SPL for all other pinnipeds are
what should be used for this IHA rather than the proposed 100 dB SEL
value for all pinnipeds.
Response: Upon review of the Commission's comments and the two sets
of thresholds, as well as additional communication with the authors of
Southall et al., 2019, we have determined that the Navy's thresholds in
the Criteria and Thresholds for U.S. Navy Acoustic and Explosive
Effects Analysis (Phase III) Technical Report (U.S. Department of the
Navy, 2017) for TTS/PTS are correct and, in fact, errors have been
found in Southall et al., 2019. (The authors plan to address these
errors in the publication). In addition, the issues the Commission
points out regarding in-air behavioral thresholds are not applicable,
as the estimated takes are based on the last three years of pinniped
observation from Navy's monitoring reports and not directly based on
specific in-air thresholds. The beaches that the Navy surveys are
largely based on where sound received is expected to reach 100 dB SEL
or greater and where animals are reacting

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to launch noises. In the case of harbor seals, the Navy is already
monitoring beaches where sound levels are less than 100 dB SEL and
often under 90 dB SPL (site O--Phoca Reef and Pirates Cove). The Navy
is monitoring at site O because oftentimes the harbor seals are not
hauled out on the western end of SNI on the typically monitored beaches
during launch events. The Navy is cognizant of the fact that some
harbor seals are reacting to sound levels lower than 90 dB SPL.
Accordingly, the Navy is monitoring those pinnipeds and requesting
additional take by Level B harassment to account for this potential
(see Estimated Take section).
In addition, the Navy has previously surveyed other parts of SNI to
determine if pinnipeds are reacting in response to launch events. The
Navy conducted surveys of the eastern end of SNI and did not find
pinnipeds reacting to launch events. The Navy has also conducted
surveys on adjacent beaches to those that are typically monitored and
did not find pinnipeds that reacted to launch events (e.g., Coast Guard
Beach in the Navy's 2015 monitoring report).
In summary, upon review of new information suggested by the
Commission, the TTS/PTS thresholds originally proposed for use remain
the best available scientific information. We also believe that the
behavioral threshold proposed for use in this context is appropriate;
however, the specific threshold discussed is of less importance here
because the actual amount of authorized takes by Level B harassment are
based on actual field monitoring conducted by the Navy of the pinniped
haulout areas that could potentially be affected by noise form launch
events.

Level B Harassment Takes

Comment: The Commission recommends that NMFS use its standard
tiered scale for determining when disturbance of hauled pinnipeds
equates to Level B harassment for all activities, i.e., based on
animals moving at least two body lengths rather than animals moving at
least 10 m, as was proposed for the Navy's launch activities at SNI.
Response: The Navy's activities are considered military readiness
activities, for which a different definition of Level B harassment is
applied. For military readiness activities, the MMPA defines
``harassment'' as: (i) Any act that injures or has the significant
potential to injure a marine mammal or marine mammal stock in the wild
(Level A harassment); or (ii) Any act that disturbs or is likely to
disturb a marine mammal or marine mammal stock in the wild by causing
disruption of natural behavioral patterns, including, but not limited
to, migration, surfacing, nursing, breeding, feeding, or sheltering, to
a point where such behavioral patterns are abandoned or significantly
altered (Level B harassment). The Navy has developed a slightly
different version of the criteria for determining when behavioral
response of a hauled pinniped rises to the level of harassment, as is
appropriate for use with the definition of Level B harassment
associated with military readiness activities. NMFS has determined that
this version, which has been used in prior incidental take
authorizations associated with launch activities on SNI (79 FR 32678;
June 6, 2014), is appropriate for evaluating Level B harassment in
association with this specified activity. NMFS may re-evaluate these
criteria with the Navy for any subsequent applications we receive from
for these activities.
Comment: The Commission comments that previous Navy monitoring
reports from 2014-17 have indicated that for all but one launch 100
percent of the hauled out harbor seals within the view of the
monitoring camera responded to the launch and, because of this, NMFS's
presumption that only 2.39 harbor seals are taken per launch is an
underestimate.
Response: In general, in recent years, few harbor seals have been
observed during launch events. NMFS' take estimate of 3 (rounded from
2.39) harbor seals per launch is an average of animals taken during the
2015-2017 monitoring seasons. The average was calculated from the
Navy's total of taken harbor seals during each launch. Using
observations to determine a take estimate, especially in cases where so
few numbers of harbor seals were present, is an appropriate use of
available data. This average take estimate per launch is not the
authorized value for a single launch event. The number of authorized
launch events (40) is multiplied by 3 harbor seals (2.39 harbor seals
conservatively rounded up) to obtain a take estimate of 120 instances
of take for harbor seals by Level B harassment which can be distributed
in varying ways across the total number of launch events.
There have been cases where the Navy observed harbor seals outside
of the field of view in the camera and assumed they were taken by the
launch. In the 2014 monitoring report, the Navy considered all 40
harbor seals observed as taken during a launch event even though they
were not in the view of the camera during the launch, but observed
during the visual count before the launch. Had NMFS used these 2014
monitoring results in its calculations, then we would have also
considered these animals as taken even though they were not in the view
of the camera. NMFS did not use this year in its take calculations
because harbor seals have not been observed in this area during launch
events over the last three years.
Comment: The Commission commented that NMFS did not authorize
enough take for pinnipeds based on a variety of factors including the
following: (1) The Commission assumes a 100-percent response rate (for
harbor seals); (2) the Commission states that additional animals
outside the regularly monitored areas should be assumed to be taken
(harbor seals); and (3) the Commission's recommendation to use NMFS's
non-military readiness pinniped disturbance criteria rather than the
military readiness disturbance criteria developed by the Navy. The
Commission recommends that NMFS authorize additional Level B harassment
takes for all species.
Response: For harbor seals, NMFS believes the amount of Level B
harassment takes suggested as appropriate by the Commission would be an
overestimate based on previous observations during Navy's launch
events. Before the launch events, the Navy monitors several sites
around the western end of SNI to determine where pinnipeds are hauled
out and what species are on the beaches. During this pre-launch
monitoring, harbor seals are frequently not present. That said, NMFS
understands the Commission's concerns, but taking a peak count in July
and applying it over the entire year for every launch is not
reasonable. To account for the possibility of some harbor seals hauling
out and then reacting to a launch in a way equivalent to a take, NMFS
has adjusted the take estimate from 120 to 480 harbor seals. Instead of
taking an average per launch, the revised take estimate is developed by
taking the total number of takes (12) and multiplying that by 40 launch
events for a total of 480 instances of take by Level B harassment for
harbor seals. NMFS believes that the number of authorized take is
adequate and sufficient for California sea lions and elephant seals.
These are based on animals taken by Level B harassment per the Navy's
monitoring reports from 2015-2017.

Mitigation and Monitoring Measures

Comment: The Commission commented on a mitigation measure that was
in the Navy's application, but not included in the proposed IHA. The
mitigation measure required that the Navy avoid launching multiple
missiles

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in quick succession over haulout sites, especially when young pups are
present. The Commission recommends that NMFS require the Navy to avoid
launching multiple missiles in quick succession over haulout sites,
especially when young pups are present as this mitigation measure was
previously required in prior incidental take authorizations for this
activity.
Response: Before the proposed IHA was published, the Navy indicated
that it could not fulfill the mitigation measure and had mistakenly
included the measure its application. The Navy indicated that it is
already limiting or avoiding launches during much of the year during
the pupping season for pinnipeds and could not be limited further due
to practicability and mission objectives. Therefore, the mitigation
measure was not included in the proposed IHA.
Comment: The Commission commented that NMFS (1) enlist its
technical experts to review the proposed acoustic monitoring plan,
including the relevant metrics and thresholds to report, (2) require
the Navy to revise the plan as necessary based on that review, and (3)
require the Navy, in the final authorization, to collect and report its
acoustic measurements consistent with any revisions.
Response: NMFS reviewed the acoustic monitoring plan and clarified
a few items in the Navy's application. In the final IHA, the Navy is
required to conduct acoustic monitoring according to this slightly
modified.

NMFS IHA Renewal Process

Comment: The Commission questioned whether the public notice
provisions for IHA Renewals fully satisfy the public notice and comment
provision in the MMPA and discussed the potential burden on reviewers
of reviewing key documents and developing comments quickly.
Additionally, the Commission recommended that NMFS use the IHA Renewal
process sparingly and selectively for activities expected to have the
lowest levels of impacts to marine mammals and that require less
complex analysis.
Response: NMFS has taken a number of steps to ensure the public has
adequate notice, time, and information to be able to comment
effectively on IHA Renewals within the limitations of processing IHA
applications efficiently. The Federal Register notice for the initial
proposed IHA (84 FR 18809; May 2, 2019) previously identified the
conditions under which a one-year Renewal IHA might be appropriate.
This information is presented in the Request for Public Comments
section of the initial proposed IHA and thus encourages submission of
comments on the potential of a 1-year renewal as well as the initial
IHA during the 30-day comment period. In addition, when we receive an
application for a Renewal IHA, we publish a notice of the proposed IHA
Renewal in the Federal Register and provide an additional 15 days for
public comment, for a total of 45 days of public comment. We will also
directly contact all commenters on the initial IHA by email, phone, or,
if the commenter did not provide email or phone information, by postal
service to provide them the opportunity to submit any additional
comments on the proposed Renewal IHA.
NMFS also strives to ensure the public has access to key
information needed to submit comments on a proposed IHA, whether an
initial IHA or a Renewal IHA. The agency's website includes information
for all projects under consideration, including the application,
references, and other supporting documents. Each Federal Register
notice also includes contact information in the event a commenter has
questions or cannot find the information they seek.
Regarding the Commission's comment that Renewal IHAs should be
limited to certain types of projects, NMFS has explained on its website
and in individual Federal Register notices that Renewal IHAs are
appropriate where the continuing activities are identical, nearly
identical, or a subset of the activities for which the initial 30-day
comment period applied. Where the commenter has likely already reviewed
and commented on the initial proposed IHA for these activities, the
abbreviated additional comment period is sufficient for consideration
of the results of the preliminary monitoring report and new information
(if any) from the past year.

Adequate Opportunity To Consider Public Comments

Comment: The Commission claims that NMFS did not have sufficient
time to review public comments or to revise the proposed IHA
accordingly. The Commission recommended that NMFS (1) delay issuance of
the Final IHA until it has thoroughly reviewed and assessed the
Commission's recommendations and any comments from the public and
revised the authorization accordingly and (2) take all steps necessary
in the future to ensure that it publishes and finalizes IHAs far enough
in advance of the planned start date of the proposed activities to
ensure full consideration is given to comments received.
Response: NMFS thanks the Commission for its concerns regarding the
IHA process. NMFS had sufficient time and we thoroughly reviewed the
comments received. We made all appropriate revisions to the final IHA.

Description of Marine Mammals in the Area of Specified Activities

Sections 3 and 4 of the Navy's application summarize available
information regarding status and trends, distribution and habitat
preferences, and behavior and life history, of the potentially affected
species. Additional information regarding population trends and threats
may be found in NMFS's Stock Assessment Reports (SARs; https://www.fisheries.noaa.gov/national/marine-mammal-protection/marine-mammal-stock-assessments) and more general information about these species
(e.g., physical and behavioral descriptions) may be found on NMFS'
website (https://www.fisheries.noaa.gov/find-species).
Table 1 below lists all species with expected potential for
occurrence in the project area 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' 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' 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' U.S. Pacific and Alaska SARs (Carretta et al., 2018). All values
presented in Table 1 are the most recent available at the time of
publication (draft SARs available online at: https://
www.fisheries.noaa.gov/national/marine-mammal-protection/draft-

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marine-mammal-stock-assessment-reports).
Marine mammal species likelihood of occurrence (designated as
``unlikely,'' ``potential'' or ``likely'') was determined through
review of NMFS SARs, species-specific literature research, and SNI
monitoring reports (Table 1). ``Unlikely'' means occurrence is not
expected, ``potential'' means the species may occur or there is casual
occurrence history, and ``likely'' means there is a strong possibility
of or regular occurrence in the project area.

Table 1--Marine Mammals Occurrence in the Project Area
--------------------------------------------------------------------------------------------------------------------------------------------------------
ESA/MMPA Stock abundance
status; (CV, Nmin, most Annual M/
Common name Scientific name Stock strategic (Y/ recent abundance PBR SI \3\ Occurrence
N) \1\ survey) \2\
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Order Carnivora--Superfamily Pinnipedia
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Family Otariidae (eared seals and
sea lions):
California sea lion.......... Zalophus U.S............... -, -, N 257,606 (N/A, 14, 011 >=319 Likely.
californianus. 233,515, 2014).
Northern Fur Seal............ Callorhinus ursinus. CA................ -, D, N 14,050 (N/A, 7,524, 451 1.8 Potential.
2013).
Steller Sea Lion............. Eumetopias jubatus.. Eastern........... T, D, Y 41,638 (see SAR, 2,498 108 Unlikely.
41,638, 2015).
Guadalupe Fur Seal........... Arctocephalus Mexico............ T, D, Y 20,000 (N/A, 542 >=3.2 Potential.
philippii townsendi. 15,830, 2010).
Family Phocidae (earless seals):
Harbor Seal.................. Phoca vitulina...... CA................ -, -, N 30,968 (N/A, 1,641 43 Likely.
27,348, 2012).
Northern Elephant Seal....... Mirounga CA Breeding....... -, -, N 179,000 (N/A, 4,882 8.8 Likely.
angustirostris. 81,368, 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/national/marine-mammal-protection/draft-marine-mammal-stock-assessment-reports. 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. A CV
associated with estimated mortality due to commercial fisheries is presented in some cases.
Note: Italicized species are not expected to be taken or are authorized.

A detailed description of the species likely to be affected by the
Navy's project, including brief introductions to the species and
relevant stocks as well as available information regarding population
trends and threats, and information regarding local occurrence, were
provided in the Federal Register notice for the proposed IHA (84 FR
18809; May 2, 2019); since that time, we are not aware of any changes
in the status of these species and stocks; therefore, detailed
descriptions are not provided here. Please refer to that Federal
Register notice for these descriptions. Please also refer to NMFS'
website (https://www.fisheries.noaa.gov/find-species) for generalized
species accounts.
Distribution of California sea lions, harbor seals, and harbor
seals on SNI, as well as on the other Channel Islands, was conducted
during the NMFS' Southwest Fisheries Science Center (SWFSC) July 2011-
2015 survey. In 1987, the SWFSC began using aerial photography at the
Channel Islands to census pinnipeds. Years later, the survey expanded
to include all the Channel Islands in aerial surveys). July surveys are
intended to census California sea lions after all pups have been born
to monitor population trends and abundance of the U.S. population and
to collect summer residence count-data for northern elephant seals and
harbor seals (Lowry et al., 20187b). The perimeter of SNI was divided
into small area-coded units to describe intra-island distribution of
pinnipeds as shown in Figure 1 below. We include Figure 1 here as a
reference when describing some of the census data by Lowry et al.
(2017b) in the Estimated Take section, to describe what areas may be
impacted by launch events and where the Navy is monitoring pinnipeds.
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Potential Effects of Specified Activities on Marine Mammals and Their
Habitat

Acoustic effects on marine mammals during the specified activity
can occur from target and missile launch activities. The effects of
airborne noise from the Navy's planned activities have the potential to
result in Level B harassment of pinnipeds hauled out on SNI, which
could cause a disruption of natural behavioral patterns such as
flushing into the water. The Federal Register notice for the proposed
IHA (84 FR 18809; May 2, 2019) included a discussion of the effects of
anthropogenic noise on marine mammals; therefore, that information is
not repeated here.
Impacts on marine mammal habitat are part of the consideration in
making a finding of negligible impact on the species and stocks of
marine mammals. Habitat includes, but is not necessarily limited to,
rookeries, mating grounds, feeding areas, and areas of similar
significance. We do not anticipate that the planned operations would
result in any temporary or permanent effects on the habitats used by
the marine mammals on SNI, including the food sources they use (i.e.,
fish and invertebrates). While it is anticipated that the activity may
result in marine mammals avoiding certain areas due to temporary
ensonification, this impact to habitat is temporary and reversible and
was considered in further detail earlier in this document, as
behavioral modification. The main impact associated with the activity
will be temporarily elevated noise levels and the associated direct
effects on marine mammals. Overall, the launch activities are not
expected to cause significant impacts or have permanent, adverse
effects on pinniped habitats or on their foraging habitats and prey.
These potential effects are discussed in detail in the Federal Register
notice for the proposed IHA (84 FR 18809; May 2, 2019), therefore that
information is not repeated here.

Estimated Take

This section provides an estimate of the number of incidental takes
for authorization through this IHA, which will inform NMFS' negligible
impact determination.
Harassment is the only type of take expected to result from these
activities. For this military readiness activity, the MMPA defines
``harassment'' as (i) Any act that injures or has the significant
potential to injure a marine mammal or marine mammal stock in the wild
(Level A harassment); or (ii) Any act that disturbs or is likely to
disturb a marine mammal or marine mammal stock in the wild by causing
disruption of natural behavioral patterns, including, but not limited
to, migration, surfacing, nursing, breeding, feeding, or sheltering, to
a point where such behavioral patterns are abandoned or significantly
altered (Level B harassment).
Authorized takes would be by Level B harassment only, in the form
of disruption of behavioral patterns (and/or TTS, although only some
missile launches have exceeded the level at

[[Page 28468]]

which TTS onset might occur, particularly for phocids) for individual
marine mammals resulting from exposure to airborne sounds from rocket
and missile launch. Based on the nature of the activity, Level A
harassment is neither anticipated nor authorized.
As described previously, no mortality is anticipated or authorized
for this activity. 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 a basic calculation to provide 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 authorized take
estimate.

Acoustic Thresholds

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.
Generally, 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). However, more recent data suggest that pinnipeds
will be harassed when exposure is above 100 dB SEL (unweighted)
(Criteria and Thresholds for U.S. Navy Acoustic and Explosive Effects
Analysis (Phase III) Technical Report (U.S. Department of the Navy,
2017). NMFS previously helped develop the Phase III criteria and has
determined that the criteria and thresholds shown in Table 2 are
appropriate to determine when Level B harassment by behavioral
disturbance may occur as a result of exposure to airborne sound on SNI.
This behavioral disturbance criterion was used to determine the areas
that the Navy should monitor based on the sound levels recorded at the
pinniped haulouts during launch events. This criterion is not being
used to directly estimate the take, rather to assume areas within which
pinnipeds hauled out on particular beaches may be harassed (based on
the previous acoustic monitoring).

Table 2--Behavioral Threshold for Impulsive Sound for Pinnipeds
------------------------------------------------------------------------
Level B harassment by behavior
Species disturbance threshold
------------------------------------------------------------------------
All pinniped species (in-air).......... 100 dB re 20 [mu]Pa2s SEL
(unweighted).
------------------------------------------------------------------------

Thresholds have also been developed identifying the received level
of in-air sound for the onset of TTS (no PTS is anticipated to occur)
for pinnipeds and discussed previously in this document (U.S.
Department of the Navy, 2017). The TTS/PTS threshold for pinnipeds (in-
air) are repeated here (see Table 3 below).

Table 3--TTS/PTS Thresholds for Pinnipeds
[In-air]
--------------------------------------------------------------------------------------------------------------------------------------------------------
Non-impulsive Impulsive
-----------------------------------------------------------------------------------------------
Group TTS threshold PTS threshold TTS threshold TTS threshold PTS threshold PTS threshold
SEL \a\ SEL \a\ SEL \a\ Peak SPL \b\ SEL \b\ Peak SPL \b\
(weighted) (weighted) (weighted) (unweighted) (weighted) (unweighted)
--------------------------------------------------------------------------------------------------------------------------------------------------------
OA \c\.................................................. 157 177 146 170 161 176
PA \d\.................................................. 134 154 123 155 138 161
--------------------------------------------------------------------------------------------------------------------------------------------------------
\a\ SEL thresholds are in dB re(20[micro]Pa) \2\[middot]s.
\b\ SPL thresholds in dB 20[micro]Pa in air.
\c\ OA-Otariid in air (California sea lion).
\d\ PA-Phocid in air (harbor seal, northern elephant seal).

Ensonified Area

In-air sound propagation from missile launch sources at SNI had not
been well studied prior to monitoring work during 2001-2007. During the
2001-2017 period, the strongest sounds originating from a missile in
flight over the beaches at SNI were produced by Vandal (no longer
launched from SNI) and Coyote launches, with the exception of one SM-2
launched in 2015 (see Table 6-3 of the application, but also Table 4
below). The range of sound levels recorded on SNI during Coyote
launches were 128 dB re 20 [mu]Pa2[middot]s SEL- (115 dB SEL-A, 123 dB
SEL-Mpa) closest to the launcher and ranged from 87 to 119 dB re 20
[mu]Pa2[middot]s SEL-f (46 to 107 dB SEL-A, 60 to 114 dB SEL-Mpa
weighted) at nearshore locations. These values demonstrate that the
sound levels are high enough to cause disturbance based on the
behavioral thresholds (Table 2), but below the TTS thresholds (Table 3)
during Coyote launches (most frequently launched missile on SNI). For
additional information on sound levels please refer to the application.
Coyotes are launched from the inland Alpha Launch Complex so there
would be no pinnipeds near the launcher. The pinnipeds closest to the
Coyote launches are on the beaches (areas L and M) directly below the
flight trajectory, for which the CPA distance is about 0.9 km. Stronger
sounds were also recorded

[[Page 28469]]

at the launcher, but sound levels were dependent on the size of the
missile launched. Launches of smaller missiles typically occur from the
Building 807 Complex near the beach where the closest pinniped haulouts
(area L and portions of K) are located about 0.3 km from the CPA.
Harbor seal haulouts (areas L and J) are located at least 1 km from the
CPA from the Building 807 Complex. It is important to note that in
recent years, harbor seals are not always present when Navy conducts
their monitoring during launch events, and there have not been many
places to observe harbor seals during the launches. There is not a
constant occupation of harbor seals on haulouts and occupation is
dependent on tides. Harbor seals tend to be more sensitive to visual
cues as well and do not prefer beaches with California sea lions. Most
of the beaches where harbor seals are hauled out, and which Navy has
been able to monitor, occur in area O which is north of both the Alpha
Launch Complex and Building 307 Complex and not in the trajectory of
launches that occur from these sites.
The Navy will continue to conduct marine mammal and acoustic
measurements during every launch event at three pinniped sites per
launch event within areas K, L, M or O. As an example in 2017, the Navy
conducted acoustic and marine mammal monitoring during their launch
events at beaches with hauled out pinnipeds (see Navy's Table 2.2 from
the 2017 monitoring report) in areas M and L (beaches of Dos Cove and
Redeye Beach) and in area O (beaches of Pirates Cove and Phoca Reef).

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. Some pinnipeds that haul out on the western end of SNI
are expected to be within the area where noise from launches exceeds
100 dB SEL. However, it is likely that far fewer pinnipeds occur within
the area where sounds from smaller launch missiles, such as the BQM
missiles, reach above 100 dB SEL and none of the recorded SELs appear
to be sufficiently strong to induce TTS. Previous monitoring during
2001-2017 showed that SELs above 100 dB re 20 [mu]Pa\2\[middot]s were
measured in pinniped areas K, L, and M (Cormorant Rock to Red Eye
Beach); therefore, these are the areas that the Navy focuses their
marine mammal monitoring on. In more recent years, Navy started
monitoring area O (Phoca Reef and Pirates Cove) as harbor seals are
hauling out here now and not as frequently in areas K, L, and M. Refer
to Figure 1 for a map of these areas.
California Sea Lions
During the July 2011-2015 census, California sea lion counts on SNI
averaged 52,634.8 individuals per year (SD = 9,899.0) (Lowry et al.,
2017b). Between 2001 and 2017, a maximum of 2,807 instances of take of
California sea lions by Level B harassment were estimated to have been
potentially harassed in a single monitoring year incidental to missile
launches at SNI (Burke 2017; Holst et al. 2010; Holst et al. 2008;
Holst et al. 2011; Ugoretz 2016; Ugoretz and Greene Jr. 2012). From the
2015-2017 monitoring seasons, there was a total of 4,940 instances of
take of California sea lions by Level B harassment (702 sea lions in
2017, 1431 sea lions in 2016, and 2,807 sea lions in 2015) over 18
launches. Of these results, an average of 274.44 instances of take of
sea lions by Level B harassment per launch occurred.
Harbor Seals
During the July 2011-2015 census, in July 2015 when all the Channel
Islands were surveyed for harbor seals, 259 seals were counted at SNI
(18.9 percent) (Lowry et al., 2017b). Harbor seals are not uniformly
distributed around the perimeter of SNI. During the July 2011-2015
census most harbor seals were mostly found in areas L, N, and Q on SNI
(see Figure 1 for a map of these areas). However, in recent years, the
Navy has indicated that harbor seals are mostly found and monitored in
area O, just north of the launch azimuths on the northern side of the
island so that is where they conduct their acoustic and marine mammal
monitoring for harbor seals. Between 2001 and 2017, a maximum of 31
instances of take of harbor seals by Level B harassment were estimated
in a single monitoring year incidental to missile launches at SNI
(Burke 2017; Holst et al. 2010; Holst et al. 2008; Holst et al. 2011;
Ugoretz 2016; Ugoretz and Greene Jr. 2012). From the 2015-2017
monitoring seasons, a total of 43 instances of take of harbor seals (8
in 2017, 4 in 2016, and 31 in 2015) by Level B harassment occurred over
18 total launches. Of these results, an average of 2.39 instances of
take of harbor seals by Level B harassment per launch occurred. These
harbor seals were mostly observed in area O (Phoca Reef and Pirates
Cove).
Northern Elephant Seals
During the July 2011-2015 census, in 2015, when all islands were
surveyed for elephant seals, 932 elephant seals were found on SNI (20.5
percent of total). Northern elephant seals were not uniformly
distributed around the perimeter of SNI. Area K at SNI had the most
elephant seals on island (Lowry et al., 2017b). From the 2015-2017
monitoring seasons, a total of 11 instances of take of elephant seals
by Level B harassment occurred (0 in 2017, 1 in 2016, 10 in 2015) of
the 100 animals that were observed. Overall, from the 2015-2017
monitoring seasons, 11 instances of take of northern elephant seals by
Level B harassment occurred over 18 launch events for an average of
0.61 per launch event.

Take Calculation and Estimation

The NDAA (Pub. L. 103-136) removed the ``small numbers'' and
``specified geographical region'' limitations indicated above and
amended the definition of ``harassment'' as it applies to a ``military
readiness activity'' to read as follows (section 3(18)(B) of the MMPA):
(i) Any act that injures or has the significant potential to injure a
marine mammal or marine mammal stock in the wild (Level A Harassment);
or (ii) Any act that disturbs or is likely to disturb a marine mammal
or marine mammal stock in the wild by causing disruption of natural
behavioral patterns, including, but not limited to, migration,
surfacing, nursing, breeding, feeding, or sheltering, to a point where
such behavioral patterns are abandoned or significantly altered (Level
B Harassment).
It is difficult to derive unequivocal criteria to identify
situations in which launch sounds are expected to cause significant
disturbance responses to pinnipeds hauled out on SNI. One or more
pinnipeds blinking its eyes, lifting or turning its head, or moving a
few feet along the beach as a result of a human activity is not
considered a ``take'' under the MMPA definition of harassment.
Therefore, the criteria used by the Navy to determine if an animal is
affected by a launch event and is taken by Level B harassment is as
follows:
1. Pinnipeds that are exposed to launch sounds strong enough to
cause TTS; or
2. Pinnipeds that leave the haulout site, or exhibit prolonged
movement (>10 m) or prolonged behavioral changes (such as pups
separated from mothers) relative to their behavior immediately prior to
the launch.
Here we describe how the information provided above is brought
together to produce a quantitative take estimate. Previously, take
estimates were calculated based on areas ensonified above the
behavioral disturbance criterion and the estimated numbers of

[[Page 28470]]

pinnipeds exposed to at or above that level. However, for this IHA we
rely on the past three seasons of monitoring of pinnipeds to determine
the take estimate.
For California sea lions, take estimates were derived from three
monitoring seasons (2015 to 2017) where an average of 274.44 instances
of take of sea lions by Level B harassment occurred per launch event.
Therefore, 275 sea lions was then multiplied by 40 launch events, for a
conservative take estimate of 11,000 instances of take for California
sea lions by Level B harassment (Table 4). This estimate is
conservative because the Navy has not conducted more than 25 launch
events (although authorized for more) in a given year since 2001.
For harbor seals, this take estimate is a change from the proposed
IHA (84 FR 18809; May 2, 2019). The take estimate was revised from 120
to 480 harbor seal instances of take by Level B harassment. A total of
12 takes were derived from the 2016 and 2017 monitoring seasons and
multiplied by 40 launch events for a total of 480 instances of take by
Level B harassment (Table 4).
For northern elephant seals, take estimates were derived from three
monitoring seasons (2015 to 2017) where an average of 0.61 instances of
take of northern elephant seals by Level B harassment occurred per
launch event. Therefore, one northern elephant seal was then multiplied
by 40 launch events for a conservative take estimate of 40 instances of
take of northern elephant seals by Level B harassment (Table 4).
Generally, northern elephant seals do not react to launch events other
than simple alerting responses such as raising their heads or
temporarily going from sleeping to being awake; however, to account for
the rare instances where they have reacted, the Navy considered that
some northern elephant seals that could be taken during launch events.

Table 4--Authorized Level B Harassment Take Estimates for Pinnipeds on
SNI
------------------------------------------------------------------------
Authorized Stock abundance
Species Level B (percent taken by Level
harassment B harassment)
------------------------------------------------------------------------
California sea lion............ 11,000 257,606 (4.27 percent).
Harbor seal.................... 480 30,968 (less than 2
percent).
Northern elephant seal......... 40 179,000 (less than 1
percent).
------------------------------------------------------------------------

Mitigation

In order to issue an IHA under Section 101(a)(5)(D) of the MMPA,
NMFS must set forth the permissible methods of taking pursuant to such
activity, and other means of effecting the least practicable 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 (latter not applicable for this action). NMFS
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)). The NDAA for FY 2004 (Pub. L. 108-136) amended the
MMPA as it relates to military readiness activities and the incidental
take authorization process such that ``least practicable impact'' shall
include consideration of personnel safety, practicality of
implementation, and impact on the effectiveness of the military
readiness activity.
In evaluating how mitigation may or may not be appropriate to
ensure the least practicable adverse impact on species or stocks and
their habitat, as well as subsistence uses where applicable, we
carefully consider two primary factors:
(1) The manner in which, and the degree to which, the successful
implementation of the measure(s) is expected to reduce impacts to
marine mammals, marine mammal species or stocks, and their habitat.
This considers the nature of the potential adverse impact being
mitigated (likelihood, scope, range). It further considers the
likelihood that the measure will be effective if implemented
(probability of accomplishing the mitigating result if implemented as
planned), the likelihood of effective implementation (probability
implemented as planned), and;
(2) the practicability of the measures for applicant
implementation, which may consider such things as cost, impact on
operations, and, in the case of a military readiness activity,
personnel safety, practicality of implementation, and impact on the
effectiveness of the military readiness activity.

Personnel Mitigation

Personnel will not enter pinniped haulouts. Personnel will be
adjacent to pinniped haulouts below the predicted missile path for two
hours prior to a launch only for monitoring purposes.

Launch Mitigation

Missiles will not cross over pinniped haulouts at elevations less
than 305 m (1,000 ft). Launches at night will be limited. Launches will
be avoided during harbor seal pupping season (February through April)
unless constrained by mission objectives. Launches will be limited
during the pupping season for northern elephant seal (January through
February) and California sea lion (June through July) unless
constrained by mission objectives or certain other factors. It is vital
that the Navy effectively executes readiness activities to ensure naval
forces can effectively execute military operations. The ability to
schedule and locate training and testing without excessively burdensome
restrictions within the Study Area is crucial to ensure those
activities are practical, effective, and safe to execute. To meet its
military readiness requirements (mission objectives), the Navy requires
consistent access to a variety of realistic, tactically-relevant
oceanographic and environmental conditions (e.g., bathymetry,
topography, surface fronts, and variations in sea surface temperature),
and sea space and airspace that is large enough or situated in a way
that allows activities to be completed without physical or logistical
obstructions, in order to achieve the highest skill proficiency and
most accurate testing results possible in areas analogous to where the
military operates.

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), except in emergencies.
Based on our evaluation of the Navy's mitigation measures, as well
as other measures considered by NMFS, NMFS

[[Page 28471]]

has determined that the mitigation measures provide the means effecting
the least practicable impact on the affected species or stocks and
their habitat, paying particular attention to rookeries, mating
grounds, and areas of similar significance.

Non-Authorized Take Prohibited

If a species for which authorization has not been granted, or a
species for which authorization has been granted but the authorized
takes are met, the Navy must consult with NMFS before the next launch
event.

Monitoring and Reporting

In order to issue an IHA for an activity, Section 101(a)(5)(D) of
the MMPA states that NMFS must set forth requirements pertaining to the
monitoring and reporting of such taking. The MMPA implementing
regulations at 50 CFR 216.104(a)(13) indicate that requests for
authorizations must include the suggested means of accomplishing the
necessary monitoring and reporting that will result in increased
knowledge of the species and of the level of taking or impacts on
populations of marine mammals that are expected to be present in the
action area. Effective reporting is critical both to compliance as well
as ensuring that the most value is obtained from the required
monitoring.
Monitoring and reporting requirements prescribed by NMFS should
contribute to improved understanding of one or more of the following:
Occurrence of marine mammal species or stocks in the area
in which take is anticipated (e.g., presence, abundance, distribution,
density);
Nature, scope, or context of likely marine mammal exposure
to potential stressors/impacts (individual or cumulative, acute or
chronic), through better understanding of: (1) Action or environment
(e.g., source characterization, propagation, ambient noise); (2)
affected species (e.g., life history, dive patterns); (3) co-occurrence
of marine mammal species with the action; or (4) biological or
behavioral context of exposure (e.g., age, calving or feeding areas);
Individual 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 other important physical components of
marine mammal habitat); and
Mitigation and monitoring effectiveness.
The Navy will conduct suite of monitoring measures on SNI to
document impacts of the launch events on marine mammals. These
monitoring measures are described below.

Visual and Video Camera Monitoring

The Navy proposes to conduct marine mammal monitoring during
launches from SNI, using visual monitoring as well as simultaneous
autonomous audio recording of launch sounds and video recording of
pinniped behavior. The monitoring (all land-based) will provide data
required to characterize the extent and nature of ``taking.'' In
particular, it will provide the information needed to document the
nature, frequency, occurrence, and duration of any changes in pinniped
behavior that might result from the missile launches, including the
occurrence of stampedes.
Visual monitoring, before and after launches, is a scan of the
haulout beaches to count pinnipeds over a wider FOV than can be
captured by a stationary video camera. This is typically done over a
15-30 minute period. Visual monitoring is conducted while the equipment
is being set up and broken down for video and acoustic monitoring which
is described in greater detail below. Prior to a launch event, Navy
personnel will make observations of the monitored haulout and record
the numbers and types of pinnipeds observed, noting the information on
field data sheets. After a launch event, Navy personnel will return to
the monitored haulout as soon as it is safe, and record the numbers and
types of pinnipeds that remain on the haulout sites and any notable
changes.
Video monitoring is conducted by recording continuously from a
minimum of 2 hours before the event to approximately 1 hour after the
event.
These video and audio records will be used to document pinniped
responses to the launches. This will include the following components:
[ssquf] Identify and document any change in behavior or movements
that may occur at the time of the launch;
[ssquf] Compare received levels of launch sound with pinniped
responses, based on acoustic and behavioral data from up to three
monitoring sites at different distances from the launch site and
missile path during each launch; from the data accumulated across a
series of launches, to attempt to establish the ``dose-response''
relationship for launch sounds under different launch conditions if
possible;
[ssquf] Ascertain periods or launch conditions when pinnipeds are
most and least responsive to launch activities, and
[ssquf] Document take by harassment.
The launch monitoring program will include remote video recordings
before, during, and after launches when pinnipeds are present in the
area of potential impact, as well as visual assessment by trained
observers before and after the launch. Remote cameras are essential
during launches because safety rules prevent personnel from being
present in most of the areas of interest. In addition, video techniques
will allow simultaneous ``observations'' at up to three different
locations, and will provide a permanent record that can be reviewed in
detail. During some launches, the use of video methods may allow
observations of up to three pinniped species during the same launch,
though in general one or two species will be recorded.
The Navy will seek to obtain video and audio records from up to
three locations at different distances from the flight path of each
missile launched from SNI. The Navy will try and reduce factors that
limit recordings. On occasion, paired video and audio data were
obtained from less than three sites during some launches, due to
various potential problems with video and acoustic recorders, timing of
remote recordings when launches are delayed, absence of pinnipeds from
some locations at some times, etc. Corresponding data is available from
the previous monitoring periods (2001-2018).
Two different types of cameras will be available for use in
obtaining video data simultaneously from three sites:
(1) Small handheld high-definition video cameras on photographic
tripods will be set up by Navy personnel at various locations on the
day of a launch, with the video data being accessible following the
launch. Recording duration varies between 300 and 600 minutes following
initiation of record mode on these cameras, depending upon battery
life, external memory card availability and other factors. The digital
data is later copied to DVD-ROMs for subsequent viewing and analysis;
and
(2) Portable Forward-Looking Infrared Radiometer (FLIR) video
cameras will be set up by the Navy for nighttime launches. These
cameras have a recording duration of approximately 300 minutes from
initiation of the record mode. The FLIR video data will be

[[Page 28472]]

accessible following the launch. The digital data will later be copied
to DVD-ROMs for subsequent viewing and analysis.
Before each launch, Navy personnel will set up or activate up to
three of the available video cameras such that they overlook chosen
haulout sites. Placement will be such that disturbance to the pinnipeds
is minimized, and each camera will be set to record a focal subgroup of
sea lions or harbor seals within the haulout aggregation for the
maximum recording time permitted by the videotape capacity. The entire
haulout aggregation on a given beach will not be recorded during some
launches, as the wide-angle view necessary to encompass an entire beach
would not allow detailed behavioral analyses (Holst et al., 2005a;
Holst et al., 2008). It will be more effective to obtain a higher-
magnification view of a sample of the animals on the beach. Prior to
selecting a focal animal group, a pan of the entire haulout beach and
surrounding area will be made in order to document the total number of
animals in the area.
Following each launch, video recordings will continue for at least
15 minutes and up to several hours. Greater post-launch time intervals
are not advisable as storms and other events may alter the composition
of pinniped haulout groups independent of launch events.
Video data will be transferred to DVD-ROMs. A trained biologist
will review and code the data from the video data as they are played
back to a monitor (Holst et al., 2005a; Holst et al., 2008). The
variables transcribed from the videos, or recorded directly at the
beach sites, will include:
[ssquf] Composition of the focal subgroup of pinnipeds (approximate
numbers and sexes of each age class);
[ssquf] Description and timing of disruptive event (launch); this
will include documenting the occurrence of launch, whether launch noise
is evident on audio channel, and duration of audibility; and
[ssquf] Movements of pinnipeds, including number and proportion
moving, direction and distance moved, pace of movement (slow or
vigorous). In addition, the following variables concerning the
circumstances of the observations will also be recorded from the
videotape or from direct observations at the site:
[cir] Study location;
[cir] Local time;
[cir] Weather (including an estimate of wind strength and
direction, and presence of precipitation); and
[cir] Tide state (Exact times for local high and low tides will be
determined by consulting relevant tide tables for the day of the
launch).

Acoustic Monitoring

Acoustical recordings will be obtained during each monitored
launch. These recordings will be suitable for quantitative analysis of
the levels and characteristics of the received launch sounds. In
addition to providing information on the magnitude, characteristics,
and duration of sounds to which pinnipeds are exposed during each
launch, these acoustic data will be combined with the pinniped
behavioral data to determine if there is a ``dose-response''
relationship between received sound levels and pinniped behavioral
reactions. The Navy will use up to four autonomous audio recorders to
make acoustical measurements. During each launch, these will be located
as close as practical to monitored pinniped haulout sites and near the
launch pad itself. The monitored haulout sites will typically include
one site as close as possible to the missile's planned flight path and
one or two locations farther from the flight path within the area of
potential impact with pinnipeds present. Autonomous Terrestrial
Acoustic Recorders (ATARs) will be deployed at the recording locations
on the launch day well before the launch time, and will be retrieved
later the same day.
During each launch, data on the type and trajectory of the missile
will be documented. From these records, the CPA of the missile to the
microphone will be determined, along with its altitude above the
shoreline. These data will be important in comparing acoustic data with
those from other launches. Other factors to be considered will include
wind speed and direction and launch characteristics (e.g., low- vs.
high-angle launch). These analyses will include data from previous and
ongoing monitoring work (Burke 2017; Holst et al., 2010; Holst et al.,
2005a; Holst et al., 2008; Holst et al., 2011; Ugoretz 2016; Ugoretz
and Greene Jr. 2012), as well as measurements to be obtained during
launches under this IHA.

Reporting

A technical report will be submitted to the NMFS' Office of
Protected Resources within 90 days from the date the IHA expires. This
report will provide full documentation of methods, results, and
interpretation pertaining to all monitoring tasks for launches
activities at SNI that are covered under this IHA.
The technical report containing the following information: 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 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. Launch reports would also include date(s) and
time(s) of each launch; 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
Stranding Coordinator immediately. Results of acoustic monitoring,
including the recorded sound levels associated with the launch and/or
sonic boom (if applicable) would also be included in the report.
In the unanticipated event that any cases of pinniped mortality are
judged to result from launch activities at any time during the period
covered by this IHA, this will be reported to NMFS immediately.

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

[[Page 28473]]

status. Consistent with the 1989 preamble for NMFS's 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 4, given that the anticipated effects of
this activity on these different marine mammal species are expected to
be similar. Activities associated with the proposed 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 only, from airborne sounds of target and
missile launch events. Based on the best available information,
including monitoring reports from similar activities that have been
authorized by NMFS, behavioral responses will likely be limited
behavioral 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 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. Given the launch acceleration and flight speed of
the missiles, most launch events are of extremely short duration.
Strong launch sounds are typically detectable near the beaches at
western SNI for no more than a few seconds per launch (Holst et al.,
2010; Holst et al., 2005a; Holst et al., 2008; Holst et al., 2005b).
Pinnipids hauled out on beaches where missiles fly over launched from
the Alpha Launch Complex routinely haul out and continue to use these
beaches in large numbers. At the Building 807 Launch Complex few
pinnipeds are known to haul out on the shoreline immediately adjacent
to this launch site. 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.
If a marine mammal responds to a stimulus by changing its behavior
(e.g., through relatively minor changes in locomotion direction/speed),
the response may or may not constitute taking at the individual level,
and is unlikely to affect the stock or the species as a whole. However,
if a sound source displaces marine mammals from an important feeding or
breeding area for a prolonged period, impacts on animals or on the
stock or species could potentially be significant (e.g., Lusseau and
Bejder, 2007; Weilgart, 2007). Flushing of pinnipeds into the water has
the potential to result in mother-pup separation, or could result in a
stampede, either of which could potentially result in serious injury or
mortality. However, based on the best available information, including
reports from almost 20 years of marine mammal monitoring during launch
events, no serious injury or mortality of marine mammals is anticipated
as a result of the proposed activities.
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 temporary modifications in behavior (i.e.,
movements of more than 10 m and occasional flushing into the water with
return to haulouts), which are not expected to adversely affect the
fitness of any individuals;
The proposed activities are expected to result in no long-
term changes in the use by pinnipeds of rookeries and haulouts in the
project area, based on nearly 20 years of monitoring data; and
The presumed efficacy of planned mitigation measures 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 proposed monitoring and
mitigation measures, NMFS finds that the total marine mammal take from
the proposed activity will have a negligible impact on all affected
marine mammal 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.

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 review our proposed action (i.e., the issuance of an
incidental harassment authorization) with respect to potential impacts
on the human environment. This action is consistent with categories of
activities identified in Categorical Exclusion B4 (incidental
harassment authorizations with no anticipated serious injury or
mortality) of the Companion Manual for NOAA Administrative Order 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 issuance of the IHA qualifies to be categorically excluded
from further NEPA review.

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. No incidental take of ESA-listed species is
authorized or expected to result from this activity. Therefore, formal
consultation under section 7 of the ESA was not required for this
action.

Authorization

As a result of these determinations, NMFS has issued an IHA to the
Navy for conducting rocket and missile launch events on SNI provided
the previously mentioned mitigation, monitoring, and reporting
requirements are incorporated.

Dated: June 14, 2019.
Donna S. Wieting,
Director, Office of Protected Resources, National Marine Fisheries
Service.
[FR Doc. 2019-12989 Filed 6-18-19; 8:45 am]
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