Taking and Importing Marine Mammals; Taking Marine Mammals Incidental to Target and Missile Launch Activities at San Nicolas Island, CA, 11891-11902 [E9-6141]

Agencies

• DEPARTMENT OF COMMERCE
• National Oceanic and Atmospheric Administration

[Federal Register Volume 74, Number 53 (Friday, March 20, 2009)]
[Proposed Rules]
[Pages 11891-11902]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: E9-6141]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

50 CFR Part 216

[Docket No. 090218189-9251-01]
RIN 0648-AX29


Taking and Importing Marine Mammals; Taking Marine Mammals 
Incidental to Target and Missile Launch Activities at San Nicolas 
Island, CA

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

ACTION:  Proposed rule; request for comments.

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SUMMARY:  NMFS has received a request from the U.S. Navy (Navy) for 
authorization for the take of marine mammals, by harassment, incidental 
to vehicle launch operations from San Nicolas Island (SNI), California. 
By this document, NMFS is proposing regulations to govern that take. In 
order to issue a Letter of Authorization (LOA) and to issue final 
regulations governing the take, NMFS must determine that the taking 
will have a negligible impact on the species or stocks and will not 
have an unmitigable adverse impact on the availability of such species 
or stock for taking for subsistence uses. NMFS must also prescribe the 
means of effecting the least practicable adverse impact on such species 
or stock and their habitats.

DATES:  Comments and information must be received no later than April 
20, 2009.

ADDRESSES: You may submit comments, identified by 0648-AX29, by any one 
of the following methods:
     Electronic Submissions: Submit all electronic public 
comments via the Federal eRulemaking Portal: https://
www.regulations.gov.
     Hand delivery or mailing of paper, disk, or CD-ROM 
comments should be addressed to P. Michael Payne, Chief, Permits, 
Conservation and Education Division, Office of Protected Resources, 
National Marine Fisheries Service, 1315 East-West Highway, Silver 
Spring, MD 20910-3225.
    Instructions: All comments received are a part of the public record 
and will generally be posted to https://www.regulations.gov without 
change. All Personal Identifying Information (for example, name, 
address, etc.) voluntarily submitted by the commenter may be publicly 
accessible. Do not submit Confidential Business Information or 
otherwise sensitive or protected information.
    NMFS will accept anonymous comments (enter N/A in the required 
fields if you wish to remain anonymous). Attachments to electronic 
comments will be accepted in Microsoft Word, Excel, WordPerfect, or 
Adobe PDF file formats only.
    A copy of the application containing a list of references used in 
this document and the Draft Environmental Assessment (EA) may be 
obtained by writing to the above address, by telephoning the contact 
listed under FOR FURTHER INFORMATION CONTACT, or on the Internet at: 
https://www.nmfs.noaa.gov/pr/permits/incidental.htm#applications. 
Documents cited in this proposed rule may also be viewed, by 
appointment, during regular business hours at the above address. To 
help NMFS process and review comments more efficiently, please use only 
one method to submit comments.

FOR FURTHER INFORMATION CONTACT: Candace Nachman, Office of Protected 
Resources, NMFS, (301) 713-2289, ext. 156, or Monica DeAngelis, 
Southwest Regional Office, (562) 980-3232.

SUPPLEMENTARY INFORMATION:

Background

    Sections 101(a)(5)(A) and (D) of the Marine Mammal Protection Act 
(MMPA; 16 U.S.C. 1361 et seq.) direct the Secretary of Commerce 
(Secretary) 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

[[Page 11892]]

are issued or, if the taking is limited to harassment, notice of a 
proposed authorization is provided to the public for review.
    Authorization for incidental takings may 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 certain subsistence uses, 
and that the permissible methods of taking and requirements pertaining 
to the mitigation, monitoring and reporting of such taking are set 
forth.
    NMFS has defined ``negligible impact'' in 50 CFR 216.103 as:

    an impact resulting from the specified activity that cannot be 
reasonably expected to, and is not reasonably likely to, adversely 
affect the species or stock through effects on annual rates of 
recruitment or survival.

    The National Defense Authorization Act of 2004 (NDAA) (Public Law 
108-136) removed the ``small numbers'' and ``specified geographical 
region'' limitations and amended the definition of ``harassment'' as it 
applies to a ``military readiness activity'' to read as follows 
(Section 3(18)(B) of the MMPA):

    (i) any act that injures or has the significant potential to 
injure a marine mammal or marine mammal stock in the wild [Level A 
Harassment]; or (ii) any act that disturbs or is likely to disturb a 
marine mammal or marine mammal stock in the wild by causing 
disruption of natural behavioral patterns, including, but not 
limited to, migration, surfacing, nursing, breeding, feeding, or 
sheltering, to a point where such behavioral patterns are abandoned 
or significantly altered [Level B Harassment].

Summary of Request

    On September 3, 2008, NMFS received an application from the Navy 
requesting authorization for the take of three species of marine 
mammals incidental to vehicle launches conducted by the Naval Air 
Warfare Center Weapons Division (NAWCWD) from the western part of SNI, 
which would impact pinnipeds hauled out on the island. Aircraft and 
helicopter flights between the Point Mugu airfield on the mainland, the 
airfield on SNI, and the target sites in the Point Mugu Sea Range will 
be a routine part of a planned launch operation. NMFS proposes 
regulations to govern these activities, to be effective from April, 
2009, through April, 2014. These regulations, if implemented, would 
allow NMFS to issue annual LOAs to the Navy. These activities are 
classified as military readiness activities. The Navy states that these 
activities may have both acoustic and non-acoustic effects on 
pinnipeds. The Navy requests authorization to take three pinniped 
species by Level B Harassment.

Measurement of Airborne Sound Levels

    The following section is provided to facilitate understanding of 
airborne and impulsive noise characteristics. In its application, the 
Navy references both pressure and energy measurements for sound levels. 
For pressure, the sound pressure level (SPL) is described in terms of 
decibels (dB) re microPa, and for energy, the sound exposure level 
(SEL) is described in terms of dB re microPa\2\s. In other 
words, SEL is the squared instantaneous sound pressure over a specified 
time interval, where the sound pressure is averaged over 5 percent to 
95 percent of the duration of the sound (in this case, one second).
    Airborne noise measurements are usually expressed relative to a 
reference pressure of 20 Pa, which is 26 dB above the underwater sound 
pressure reference of 1 microPa. However, the conversion from air to 
water intensities is more involved than this and is beyond the scope of 
this document. NMFS recommends interested readers review NOAA's 
tutorial on this issue: https://www.pmel.noaa.gov/vents/acoustics/
tutorial/tutorial.html. Also, airborne sounds are often expressed as 
broadband A-weighted (dBA) or C-weighted (dBC) sound levels. A-
weighting refers to frequency-dependent weighting factors applied to 
sound in accordance with the sensitivity of the human ear to different 
frequencies. With A-weighting, sound energy at frequencies below 1 kHz 
and above 6 kHz are de-emphasized and approximates the human ear's 
response to sounds below 55 dB. C-weighting corresponds to the relative 
response to the human ear to sound levels above 85 dB. C-weight scaling 
is useful for analyses of sounds having predominantly low-frequency 
sounds, such as sonic booms.

Description of the Specified Activity

    The NAWCWD is the Navy's full-spectrum research, development, test, 
and evaluation center of excellence for weapons systems associated with 
air warfare, aircraft weapons integration, missiles and missile 
subsystems, and assigned airborne electronic warfare systems. NAWCWD is 
a multi-site organization that includes the Point Mugu Sea Range (Sea 
Range) and is responsible for environmental compliance for this Sea 
Range and SNI. NAWCWD plans to continue a launch program for missiles 
and targets from several launch sites on SNI. The purpose of these 
launches is to support test and training activities associated with 
operations on the Sea Range. Figure 1 in the Navy's application 
provides a regional site map of the Range and SNI. A more detailed 
description of the island and proposed launch activities are provided 
later in the Point Mugu Sea Range Final EIS/OEIS (NAWCWD 2002) and in 
reports on previous vehicle launch monitoring periods (e.g., Holst et 
al., 2005a, 2008). The Sea Range is used by the U.S. and allied 
military services to test and evaluate sea, land, and air weapon 
systems; to provide realistic training opportunities; and to maintain 
operational readiness of these forces. Some of the SNI launches are 
used for practicing defensive drills against the types of weapons 
simulated by these vehicles. Some launches may be conducted for the 
related purpose of testing new types of targets, to verify that they 
are suitable for use as operational targets.
    The vehicles are launched from one of several fixed locations on 
the western end of SNI and fly generally westward through the Sea 
Range. Launches are expected to involve supersonic and subsonic 
vehicles. Some vehicles are launched from the Alpha Launch Complex 
located 190 m (623.4 ft) above sea level on the west-central part of 
SNI (see Figure 2 in the Navy's application). The Building 807 Launch 
Complex, used for most launches of smaller vehicles, as well as some 
large ones, is at the western end of SNI at approximately 11 m (36 ft) 
above sea level.
    The Navy may launch as many as 200 vehicles from SNI over a 5-yr 
operations program, with up to 40 launches per year, but this number 
can vary depending on operational requirements. Launch timing will be 
determined by operational, meteorological, and logistical factors. Up 
to 10 launches per year may occur at night. Nighttime launches will 
only take place when required by the test objectives, e.g., when 
testing the Airborne Laser system (ABL). For this system, missiles must 
be launched at night when the laser is visible. Some launch events 
involve a single vehicle, while others involve the launch of multiple 
vehicles either in quick succession or at intervals of a few hours.
    The Coyote Supersonic Sea-skimming Target (SSST) is anticipated to 
be the primary launch vehicle. However, the Navy states that it may 
become necessary to substitute similar vehicles or different equipment 
in some cases. While other vehicles may be launched in the future, the 
largest contemplated in the Navy's application and this Federal 
Register notice is 23,000 kg

[[Page 11893]]

(50,706 lbs). These larger vehicles would be launched up to 3 times per 
year. Details on the types of vehicles to be launched are provided in 
the following subsections.

Coyote

    The Coyote, designated GQM-163A, is an expendable SSST powered by a 
ducted-rocket ramjet. It has replaced the Vandal, which was used as the 
primary vehicle during launches from 2001-2005. The Coyote is similar 
in size and performance to the Vandal.
    The Coyote is capable of flying at low altitudes (4 m [13 ft] 
cruise altitude) and supersonic speeds (Mach 2.5) over a flight range 
of 83 km (51.6 mi). This vehicle is designed to provide a ground 
launched aerial target system to simulate a supersonic, sea-skimming 
Anti-Ship Cruise Missile threat. The SSST assembly consists of two 
primary subsystems: MK 70 solid propellant booster and the GQM-163A 
target vehicle. The solid-rocket booster is approximately 46 cm (18 in) 
in diameter and is of the type used to launch the Navy's ``Standard'' 
surface-to-air missile. The GQM-163A target vehicle is 5.5 m (18 ft) 
long and 36 cm (14 in) in diameter, exclusive of its air intakes. It 
consists of a solid-fuel Ducted Rocket (DR) ramjet subsystem, Control 
and Fairing Subassemblies, and the Front End Subsystem (FES). Included 
in the FES is an explosive destruct system to terminate flight if 
required.
    The Coyote utilizes the Vandal launcher, currently installed at the 
Alpha Launch Complex on SNI with a Launcher Interface Kit. A modified 
AQM-37C Aerial Target Test Set is utilized for target checkout, mission 
programming, verification of the vehicle's ability to perform the 
entire mission, and homing updates while the vehicle is in flight.
    During a typical launch, booster separation occurs approximately 
5.5 s after launch and approximately 2.6 km (1.6 mi) downrange, at 
which time the vehicle has a speed of approximately Mach 2.35 (Orbital 
Sciences Corp; www.orbital.com). Following booster separation, the GQM-
163A's DR ramjet ignites, the vehicle reaches its apogee, and then 
dives to 5 m (16.4 ft) altitude while maintaining a speed of Mach 2.5. 
During launches from SNI, the low-altitude phase occurs over water west 
of the island. The target performs pre-programmed maneuvers during the 
cruise and terminal phases, as dictated by the loaded mission profile, 
associated waypoints, and mission requirements. During the terminal 
phase, the Coyote settles down to an altitude of 4 m (13 ft) and Mach 
2.3 until DR burnout.
    During 2003-2007, Coyotes were launched from SNI at azimuths of 
270-300[deg] and elevation angles of 14-22[deg] (Holst et al., 2005a, 
2008). Coyotes produced flat-weighted SPLs (SPL-f) of 125-134 decibels 
reference 20 microPa (dB re 20 microPa) at distances of 0.8-1.7 km 
(0.5-1.1 mi) from the three-dimensional (3-D) closest point of approach 
(CPA) of the vehicle, and 82-93 dB at CPAs of 2.4-3.2 km (1.5-2 mi) 
(Holst et al., 2005a, 2008). Flat-weighted SELs (SEL-f) ranged from 87 
to 119 dB re 20 microPa\2\s. SELs M-weighted for pinnipeds in 
air (Mpa) ranged from 60 to 114 dB re 20 microPa\2\s, and peak 
pressures ranged from 100 to 144 dB re 20 microPa. The reference sound 
pressure (20 microPa) used here and throughout the document, is 
standard for airborne sounds.

Advanced Gun System (AGS)

    At SNI, a howitzer has been used to launch test missiles, as the 
AGS is still being developed. The AGS is a gun designed for a new class 
of Destroyer; it will be used to launch both small missiles and 
ballistic shells. It is to be a fully integrated gun weapon system, 
including a 155-mm (2.2-in) gun, integrated control, an automated 
magazine, and a family of advanced guided and ballistic projectiles, 
propelling charges, and auxiliary equipment. The operational AGS will 
have a magazine capacity of 600 to 750 projectiles and associated 
propelling charges. The regular charge for the gun will replace the 
booster that is usually associated with a surface-launched missile. The 
gun gets the missile up to speed, at which point the missile's 
propulsion takes over. The missile itself is relatively quiet, as it 
does not have a booster and is fairly small. However, the gun blast is 
rather strong. Each missile launch is preceded by one (sometimes two) 
howitzer firings using a slug. The slug is used to verify that the gun 
barrel is properly seated and aligned.
    During 2002-2006, AGS missiles and test slugs were launched from 
SNI at azimuths of 235-305[deg] and elevation angles of 50-65[deg] 
(Holst et al., 2005a, 2008). AGS vehicles resulted in SPL-f values of 
97-117 dB re 20 microPa, at nearshore sites located 0.75-2 km (0.5-1.2 
mi) from the CPA and 125-127 dB at sites located less than 462 m (1,516 
ft) from the CPA. SEL-f levels ranged from 90 to 113 dB re 20 
microPa\2\s, and Mpa-weighted SELs ranged from 64 to 103 dB re 
20 microPa\2\s. The peak pressure ranged from 107 to 135 dB re 
20 microPa. AGS slugs produced SPL-f values of 100-133 dB re 20 microPa 
nearshore. SEL-f ranged from 88 to 120 dB re 20 microPa\2\s, 
Mpa-weighted SELs ranged from 62 to 103 dB re 20 microPa\2\s, 
and the peak pressures were 104 to 139 dB re 20 microPa.

Rolling Airframe Missile (RAM)

    The Navy/Raytheon RAM is a supersonic, lightweight, quick-reaction 
missile. This relatively small missile, designated RIM 116, uses the 
infrared seeker of the Stinger missile and the warhead, rocket motor, 
and fuse from the Sidewinder missile. It has a high-tech radio-to-
infrared frequency guidance system. The RAM is a solid-propellant 
rocket 12.7 cm (5 in) in diameter and 2.8 m (9.2 ft) long. Its launch 
weight is 73.5 kg (162 lbs), and operational versions have warheads 
that weigh 11.4 kg (25 lbs).
    At SNI, RAMs are launched from the Building 807 Launch Complex. 
During 2001-2007, RAMs were launched at an azimuth of 240[deg] and 
elevation angles of 8-10[deg] (Holst et al., 2005a, 2008). The RAMs 
resulted in SPL-f up to 126 dB near the launcher and 99 dB at a 
nearshore site located 1.6 km (1 mi) from the CPA (Holst et al., 2005a, 
2008). SEL-f ranged from 84 to 97 dB re 20 microPa\2\s, and 
micropa-weighted SELs were 76 to 96 dB re 20 microPa\2\s. Peak 
pressure ranged from 104 to 117 dB re 20 microPa.

Arrow Self-defense Missile

    The Arrow is a theater missile defense weapon or anti-ballistic 
missile. It was developed in Israel and is designed to intercept 
tactical ballistic missiles. It is approximately 6.8 m (22.3 ft) long 
and 60 cm (23.6 ft) in diameter. It travels at hypersonic speed and has 
high and low altitude interception capabilities. The Arrow consists of 
three main components: a phased array radar (known as Green Pine), a 
fire control center (called Citron Tree), and a high-altitude 
interceptor missile that contains a powerful fragmentation warhead. It 
also has two solid propellant stages, including a booster and 
sustainer. The array radar is capable of detecting incoming missiles at 
a distance of 500 km (310.7 mi). Once a missile is detected, the fire 
control center launches the interceptor missile. The interceptor 
travels at nine times the speed of sound and reaches an altitude of 50 
km (31.7 mi) in less than 3 min.
    The first test of an Arrow in the U.S. took place at SNI on July 
29, 2004. At SNI, Arrows have been launched vertically, near the Alpha 
Launch Complex from the Miscellaneous Launch Pad (see Figure 2 in the 
Navy's application), at an azimuth of 285[deg], crossing the beach at 
an altitude of 2,134 m (7,001 ft). During these launches, Arrows 
produced SPL-f of 84-90 dB re 20 microPa at distances of 1.8-2.7

[[Page 11894]]

km (1.1-1.7 mi) from the CPA. SEL-f ranged from 96 to 102 dB re micro20 
microPa\2\s, and Mpa-weighted SELs ranged from 92 to 99 dB re 
20 microPa\2\s. Peak pressures ranged from 100 to 107 dB re 
micro20 microPa (Holst et al., 2005a, 2008).

Terrier-Black Brant

    The Terrier-Black Brant consists of the Terrier Mark 70 booster and 
the Black Brant rocket. The solid-rocket booster is approximately 46 cm 
(18 in) in diameter, 394 cm (155 in) long, and weighs 1,038 kg (2,288 
lbs). The Black Brant has a diameter of 44 cm (17 in), is 533 cm (209.8 
in) long, and weighs 1,265 kg (2,789 lbs). This vehicle reaches an 
altitude of 203 km (126 mi) and has a range of 264 km (164 mi). Terrier 
burnout occurs after 6.2 s at an altitude of 3 km (1.9 mi), and Black 
Brant burnout occurs after 44.5 s at an altitude of 37.7 km (23.4 mi). 
On SNI, this target will typically be launched vertically from the 
Building 807 Launch Complex. The Terrier-Black Brant will be launched 
at night to test the ABL and may be used to support other testing after 
its initial use for ABL.

Terrier-Lynx

    The Terrier-Lynx is a two-stage unguided, fin-stabilized rocket. 
The first stage consists of the Terrier Mark 70 booster, and the second 
stage is the Lynx rocket motor. The Lynx is 36 cm (14 in) in diameter 
and 279 cm (109.8 in) long. This vehicle reaches an altitude of 84 km 
(52.2 mi) and has a range of 99 km (61.5 mi). Terrier burnout occurs 
after 6.2 s at an altitude of 2.3 km (1.4 mi), and Lynx burnout occurs 
after 58.5 s at 43.5 km (27 mi). On SNI, this target will typically be 
launched vertically from the Building 807 Launch Complex using the 50k 
(approximately 23,000 kg or 50,000 lbs) launcher. Terrier-Lynx targets 
will be launched at night to test the ABL. Both the Terrier-Lynx and 
Terrier-Black Brant will use the same Terrier Mk 70 booster as the 
Coyote, so launch sound levels should be similar to those from that 
vehicle.

Other Vehicle Launches

    The Navy may also launch other vehicles to simulate various types 
of threat missiles and aircraft, and to test the ABL. For example, on 
August 23, 2002, a Tactical Tomahawk was launched from Building 807 
Launch Complex, and on September 20, 2001, a Terrier-Orion was launched 
from the Alpha Launch Complex. The Tomahawk produced an SPL-f of 93 dB 
re 20 microPa, an SEL-f of 107 dB re 20 Pa\2\s, and an Mpa-
weighted SEL of 105 dB re 20 microPa\2\s at a distance of 539 m 
(1,768.4 ft) from the CPA; the peak pressure was 111 dB re 20 microPa. 
The Terrier-Orion resulted in an SPL-f of 91 dB re 20 microPa, an SEL-f 
of 96 dB re 20 microPa\2\s, and an Mpa-weighted SEL of 92 dB re 
20 microPa\2\s at a distance of 2.4 km (1.5 mi) from the CPA; 
the peak pressure was 104 dB re 20 microPa. A Falcon was launched from 
the Alpha Launch Complex on April 6, 2006; it produced an SPL-f of 84 
dB re 20 microPa, an SEL-f of 88 dB re 20 microPa, and an Mpa-weighted 
SEL of 82 dB re 20 microPa at a beach located north of the launch 
azimuth. Near the launcher, the SPL-f was 128 dB re 20 microPa, SEL-f 
was 126 dB re 20 microPa, and Mpa-weighted SEL was 125 dB re 20 
microPa.
    Vehicles of the BQM-34 or BQM-74 type could also be launched. These 
are small, unmanned aircraft that are launched using jet-assisted take-
off (JATO) rocket bottles; they then continue offshore powered by small 
turbojet engines. The larger of these, the BQM-34, is 7 m (23 ft) long 
and has a mass of 1,134 kg (2,500 lbs) plus the JATO bottle. The 
smaller BQM-74 is up to 420 cm (165.4 in) long and has a mass of 250 kg 
(551 lbs) plus the solid propellant JATO bottles. Burgess and Greene 
(1998) reported that A weighted SPLs (SPL-A) ranged from 92 dBA re 20 
Pa at a CPA of 370 m to 145 dB at 15 m (49.2 ft) for a launch that 
occurred on November 18, 1997.
    If launches of other vehicle types occur, they would be included 
within the total of 40 launches anticipated per year. It is possible 
that launch trajectories could include a wider range of angles than 
shown on Figure 2 in the Navy's application.

General Launch Operations

    Aircraft and helicopter flights between the Point Mugu airfield on 
the mainland, the airfield on SNI, and the target sites in the Sea 
Range will be a routine part of a planned launch operation. These 
flights generally do not pass at low level over the beaches where 
pinnipeds are expected to be hauled out.
    Movements of personnel are restricted near the launch sites at 
least several hours prior to a launch for safety reasons. No personnel 
are allowed on the western end of SNI during launches. Movements of 
personnel or vehicles near the island's beaches are also restricted at 
other times of the year for purposes of environmental protection and 
preservation of cultural resource sites.

Description of Habitat and Marine Mammals Affected by the Activity

    A detailed description of the Channel Islands/southern California 
Bight ecosystem and its associated marine mammals can be found in 
several documents (Le Boeuf and Brownell, 1980; Bonnell et al., 1981; 
Lawson et al., 1980; Stewart, 1985; Stewart and Yochem, 2000; Sydeman 
and Allen, 1999) and is not repeated here.
    Many of the beaches in the Channel Islands provide resting, molting 
or breeding places for several species of pinnipeds including: northern 
elephant seals (Mirounga angustirostris), harbor seals (Phoca 
vitulina), California sea lions (Zalophus californianus), northern fur 
seals (Callorhinus ursinus), Guadalupe fur seals (Arctocephalus 
townsendi), and Steller sea lions (Eumetopias jubatus). On SNI, three 
of these species, northern elephant seals, harbor seals, and California 
sea lions, can be expected to occur on land in the area of the proposed 
activity either regularly or in large numbers during certain times of 
the year.
    Northern fur seals, Guadalupe fur seals, and Steller sea lions are 
far less common on SNI. The northern fur seal is occasionally sighted 
on SNI in small numbers (Stewart and Yochem, 2000); a single female 
with a pup was sighted on the island in July 2007 (NAWCWD, 2008). It is 
also possible that individual Guadalupe fur seals may be sighted on the 
beaches. The Guadalupe fur seal is an occasional visitor to the Channel 
Islands, but breeds mainly on Guadalupe Island, Mexico, which is 
approximately 463 km (288 mi) south of the Sea Range. The last sighting 
was of a lone individual seen ashore in the summer of 2007 (NAWCWD, 
2008). The Steller sea lion was once abundant in these waters, but 
numbers have declined since 1938. No adult Steller sea lions have been 
sighted on land in the Channel Islands since 1983 (Stewart et al., 
1993c in NMFS 2008). Thus, it is very unlikely that Steller sea lions 
will be seen on or near SNI beaches.
    Additional information on the biology, distribution, and abundance 
of the marine mammal species likely to be affected by the launch 
activities on SNI can be found in the Navy's application (see 
ADDRESSES) and the NMFS Stock Assessment Reports, which can be found 
at: https://www.nmfs.noaa.gov/pr/pdfs/sars/po2007.pdf. Please refer to 
those documents for information on those species.

Comments and Responses

    On September 16, 2008, NMFS published a notice of receipt of 
application for an LOA in the Federal Register (73 FR 53408) and 
requested comments and information from the public for 30 days. NMFS 
received comments from the Marine Mammal

[[Page 11895]]

Commission (Commission). The Commission supports NMFS' decision to 
publish proposed regulations for the specified activities provided that 
appropriate and effective mitigation and monitoring activities are 
incorporated into the regulations. NMFS has included mitigation and 
monitoring measures into this proposed rule and has preliminarily 
determined that these measures will ensure the least practicable 
adverse impact on the species or stocks and their habitats.

Potential Effects of Specified Activities on Marine Mammals

    As outlined in previous NMFS documents, the effects of noise on 
marine mammals are highly variable, and can be categorized as follows 
(based on Richardson et al., 1995):
    (1) The noise may be too weak to be heard at the location of the 
animal (i.e., lower than the prevailing ambient noise level, the 
hearing threshold of the animal at relevant frequencies, or both);
    (2) The noise may be audible but not strong enough to elicit any 
overt behavioral response;
    (3) The noise may elicit reactions of variable conspicuousness and 
variable relevance to the well being of the marine mammal; these can 
range from temporary alert responses to active avoidance reactions, 
such as stampedes into the sea from terrestrial haul-out sites;
    (4) Upon repeated exposure, a marine mammal may exhibit diminishing 
responsiveness (habituation), or disturbance effects may persist; the 
latter is most likely with sounds that are highly variable in 
characteristics, infrequent and unpredictable in occurrence (as are 
vehicle launches), and associated with situations that a marine mammal 
perceives as a threat;
    (5) Any anthropogenic noise that is strong enough to be heard has 
the potential to reduce (mask) the ability of a marine mammal to hear 
natural sounds at similar frequencies, including calls from 
conspecifics, and underwater environmental sounds such as surf noise;
    (6) If mammals remain in an area because it is important for 
feeding, breeding, or some other biologically important purpose even 
though there is chronic exposure to noise, it is possible that there 
could be noise-induced physiological stress; this might in turn have 
negative effects on the well-being or reproduction of the animals 
involved; and
    (7) Very strong sounds have the potential to cause temporary or 
permanent reduction in hearing sensitivity. In terrestrial mammals, and 
presumably marine mammals, received sound levels must far exceed the 
animal's hearing threshold for there to be any temporary threshold 
shift (TTS) in its hearing ability. For transient sounds, the sound 
level necessary to cause TTS is inversely related to the duration of 
the sound. Received sound levels must be even higher for there to be 
risk of permanent hearing impairment.
    Potential impacts of the planned vehicle launch operations at SNI 
on marine mammals involve both acoustic and non-acoustic effects. 
Acoustic effects relate to sound produced by the engines of all launch 
vehicles, and, in some cases, their booster rockets. Potential non-
acoustic effects could result from the physical presence of personnel 
during placement of video and acoustical monitoring equipment. However, 
careful deployment of monitoring equipment is not expected to result in 
any disturbance to pinnipeds hauled out nearby. Any visual disturbance 
caused by passage of a vehicle overhead is likely to be minor and brief 
as the launch vehicles are relatively small and move at great speed.

Behavioral Reactions of Pinnipeds to Vehicle Launches

    Noises with sudden onset or high amplitude relative to the ambient 
noise level may elicit a behavioral response from pinnipeds resting on 
shore. Some pinnipeds tolerate high sound levels without reacting 
strongly, whereas others may react strongly when sound levels are 
lower. Available literature describing behavioral responses of 
pinnipeds to the types of sound recorded near haul-out sites on SNI 
indicates variability in the responses (see Figure 25 in the Navy's 
application). Responses can range from momentary startle reactions to 
animals fleeing into the water or otherwise away from their resting 
sites (i.e., stampede). Studies of pinnipeds during vehicle launch 
events have demonstrated that different pinniped species, and even 
different individuals in the same haul-out group, can exhibit a range 
of response from alert to stampede. An acoustic stimulus with sudden 
onset (such as a sonic boom) may be analogous to a looming visual 
stimulus (Hayes and Saif, 1967), which can be especially effective in 
eliciting flight or other responses (Berrens et al., 1988). Vehicle 
launches are unlike many other forms of disturbance because of their 
sudden sound onsets, high peak levels in some cases, and short 
durations (Cummings, 1993). Strong launch sounds are typically 
detectable near the beaches at western SNI for no more than a few 
seconds per launch (Holst et al., 2005a, 2008).
    Holst et al. (2005a, 2008) summarize the systematic monitoring 
results from SNI from mid-2001 through 2007. In particular, northern 
elephant seals seem very tolerant of acoustic disturbances (Stewart, 
1981b; Holst et al., 2008). In contrast, harbor seals are more easily 
disturbed. Based on SNI launch monitoring results from 2001 to 2007, 
most pinnipeds, especially northern elephant seals, would be expected 
to exhibit no more than short-term alert or startle responses (Holst et 
al., 2005a, 2008). Any localized displacement would be of short 
duration; although some harbor seals may leave their haul-out site 
until the following low tide. However, Holst and Lawson (2002) noted 
that numbers occupying haul-out sites on the next day were similar to 
pre-launch numbers.
    The most common type of reaction to vehicle launches at SNI is 
expected to be a momentary ``alert'' response. Previous observations 
indicate that elephant seals, in particular, will rarely if ever show 
more than a momentary alert reaction (Stewart, 1981b; Stewart et al., 
1994b; Holst et al., 2005a, b; 2008) even when exposed to noise levels 
or types that caused nearby harbor seals and California sea lions to 
flee the haul-out sites.
    Video recordings of pinnipeds around the periphery of western SNI 
during launches on SNI in 2001-2007 have shown that some pinnipeds 
react to a nearby launch by moving into the water or along the 
shoreline (Holst et al., 2005a, b; 2008). Pinniped behavioral responses 
to launch sounds were usually brief and of low magnitude, especially 
for northern elephant seals. California sea lions (especially pups and 
juveniles) exhibited more reaction than elephant seals. Harbor seals 
were the most responsive of the three species.
    Northern elephant seals exhibited little reaction to launch sounds 
(Holst et al., 2005a, b; 2008). Most individuals merely raised their 
heads briefly upon hearing the launch sounds and then quickly returned 
to their previous activity pattern (usually sleeping). During some 
launches, a small proportion of northern elephant seals moved a short 
distance on the beach, away from their resting site, but settled within 
minutes.
    Responses of California sea lions to the launches varied by 
individual and age group (Holst et al., 2005a, b; 2008). Some exhibited 
brief startle responses and increased vigilance for a short period 
after each launch. Others, particularly pups that were previously

[[Page 11896]]

playing in groups along the margin of the haul-outs, appeared to react 
more vigorously. A greater proportion of hauled-out sea lions typically 
responded and/or entered the water when launch sounds were louder 
(Holst et al., 2005a, b; 2008). Adult sea lions already hauled out 
would mill about on the beach for a short period before settling, 
whereas those in the shallow water near the beach did not come ashore 
like the aforementioned pups.
    During the majority of launches at SNI, most harbor seals left 
their haul-out sites on rocky ledges to enter the water and did not 
return during the duration of the video-recording period (which 
sometimes extended up to several hours after the launch ended) (Holst 
et al., 2005a, b; 2008). During monitoring the day following a launch, 
harbor seals were usually hauled out again at these sites (Holst and 
Lawson, 2002).
    The type of vehicle being launched is also important in determining 
the nature and extent of pinniped reactions to launch sounds. Holst et 
al. (2008) showed that significantly more California sea lions 
responded during Coyote launches than during other vehicle launches. 
AGS launches caused the fewest reactions. Elephant seals showed 
significantly less reaction during launches involving vehicles other 
than Vandals (Holst et al., 2008). The BQM-34 and especially the BQM-74 
subsonic drone vehicles that may be launched from SNI are smaller and 
less noisy than Coyotes. Launches of BQM-34 drones from Point Mugu have 
not normally resulted in harbor seals leaving their haul out area at 
the mouth of Mugu Lagoon approximately 3.2 km (2 mi) to the side of the 
launch track (Lawson et al., 1998).
    In addition to noise, the night launches will also emit light. 
Haul-out beaches near Building 807 Launch Complex in particular may be 
affected by light during ABL launches. No additional responses to the 
light, above and beyond those that are elicited by the launch sounds 
are anticipated. Continuation of the proposed launch monitoring program 
(see the ``Monitoring'' section later in this document) will enable 
further documentation of pinniped responses to various launch vehicles 
with different acoustic characteristics and to nighttime launches.
    Since the launches are relatively infrequent, and of such brief 
duration, it is unlikely that pinnipeds near the launch sites will 
become habituated to the sounds. Additionally, the infrequent launches 
(up to 40 per year, of which some will be of small vehicles) will cause 
masking for no more than a very small fraction of the time during any 
single day (i.e., usually less than 2 s and rarely more than 5 s during 
a single launch). NMFS believes that these occasional brief episodes of 
masking will have minimal effects on the abilities of pinnipeds to hear 
one another or to detect natural environmental sounds that may be 
relevant to the animals.
    It is possible that launch-induced stampedes could have adverse 
impacts on individual pinnipeds on the west end of SNI. However, during 
vehicle launches in 2001-2007, there was no evidence of launch-related 
injuries or deaths (Holst et al., 2005a, b; 2008). On several 
occasions, harbor seals and California sea lion adults moved over pups 
as the animals moved in response to the launches, but the pups did not 
appear to be injured (Holst et al., 2005a, 2008). Given the large 
numbers of pinnipeds giving birth on SNI, it is expected that injuries 
and deaths will occur as a result of natural causes. For example, 
during the 1997-98 El Nino event, pup mortality reached almost 90 
percent for northern fur seals at nearby San Miguel Island, and some 
adults may have died as well (Melin et al., 2005). Pup mortality also 
increased during this period for California sea lions.
    Indirect evidence that launches have not caused significant, if 
any, mortality comes from the fact that populations of northern 
elephant seals and especially California sea lions on SNI are growing 
rapidly despite similar launches for many years. Harbor seal numbers 
have remained stable, but new harbor seal haul-out sites have been 
established at locations directly under and near the launch tracks of 
vehicles (see Figure 9 in the Navy's application).

Hearing Impairment of Pinnipeds from Vehicle Launches

    Although it is possible that some pinnipeds (particularly harbor 
seals) may incur TTS (and possibly, although highly unlikely, even 
slight permanent threshold shift (PTS)) during launches from SNI, 
hearing impairment has not been shown for pinniped species exposed to 
launch sounds. Thorson et al. (1998, 1999) used measurements of 
auditory brainstem response to demonstrate that harbor seals did not 
exhibit loss in hearing sensitivity following launches of large 
vehicles at Vandenberg Air Force Base (VAFB), California.
    There are few published data on TTS thresholds for pinnipeds in air 
exposed to impulsive or brief non-impulsive sounds. J. Francine, quoted 
in 66 FR 41837 (August 9, 2001), has mentioned evidence of mild TTS in 
captive California sea lions exposed to a 0.3-s transient sound with an 
SEL of 135 dBA re 20 microPa\2\s (see also Bowles et al., 
1999). However, mild TTS may occur in harbor seals exposed to SELs 
lower than 135 dB SEL (A. Bowles, pers. comm., 2003 in NAWCWD, 2008). 
Data indicate that the TTS threshold on an SEL basis may actually be 
around 129-131 dB re 20 microPa\2\s for harbor seals, within 
their frequency range of good hearing (Kastak et al., 2004; Southall et 
al., 2007). The same research teams have found that the TTS thresholds 
of California sea lions and elephant seals exposed to strong sounds are 
higher as compared to the harbor seal (Kastak et al., 2005; see Table 5 
in the Navy's application). Based on these studies and other available 
data, Southall et al. (2007) propose that single impulsive sounds, such 
as those from a sonic boom, may induce mild TTS if the received peak 
pressure is approximately 143 dB re 20 microPa (peak) or if received 
frequency weighting appropriate for pinnipeds in air (Mpa-weighted) SEL 
is approximately 129 dB re 20 microPa\2\s. Those levels apply 
specifically to harbor seals; those levels are not expected to elicit 
TTS in elephant seals or California sea lions (Southall et al., 2007). 
Less is known about levels that may cause PTS, but in order to elicit 
PTS, a single sound pulse would probably need to exceed the TTS 
threshold by at least 15 dB or more, on an SEL basis (Southall et al., 
2007; see Table 5 in the application).
    Available evidence from launch monitoring at SNI in 2001-2007 
suggests that only a small minority (if any) of the pinnipeds at SNI 
are exposed to levels of launch sounds that could elicit TTS or even 
PTS (see Holst et al., 2008). The assumed TTS threshold for the species 
with the most sensitive hearing (harbor seal) is 129-131 dB re 20 
microPa\2\s (Mpa-weighted), with higher values applying to 
other species (see Table 5 in the application). The measured SEL values 
near pinniped beaches during vehicle launches at SNI during 2001-2007 
were less than 129 dB re 20 microPa\2\s (A- or Mpa-weighted). 
In fact, few if any pinnipeds were exposed to SELs greater than 122 dB 
re 20 microPa\2\s on an Mpa-weighted basis and greater than 118 
dBA, even on beaches near Building 807 Launch Complex (Holst et al., 
2008). Sounds at these levels are not expected to cause TTS or PTS. 
However, small numbers of northern elephant seals and California sea 
lions may have been exposed to peak pressures as high as 150 dB re 20 
microPa when Vandals flying over the beach created a sonic boom. That 
peak-pressure level would not be expected to elicit PTS in elephant

[[Page 11897]]

seals or California sea lions, but might be near the minimum level that 
could elicit PTS in harbor seals if any harbor seals at SNI had been 
exposed to such high levels (which apparently did not occur; see Holst 
et al., 2008). Harbor seals were not hauled out on beaches where such 
high sound levels were measured, and they do not haul out near the 
Building 807 Launch Complex. However, it is possible that some harbor 
seals, and perhaps elephant seals and California sea lions, did incur 
TTS during launches at SNI, as peak-pressure levels at haul-out sites 
sometimes reached greater than or equal to 143 dB re 20 microPa when a 
sonic boom occurred. In the event that TTS did occur, it would 
typically be mild and reversible.

Non-auditory Physiological Responses to Vehicle Launches

    Wolski (1999) examined the physiological responses of pinnipeds to 
simulated sonic booms. He noted that harbor seals responded with 
bradycardia, reduced movement, and brief apneas (indicative of an 
orienting response). Northern elephant seals responded similarly, and 
the response of California sea lions was variable. Perry et al. (2002) 
examined the effects of sonic booms from Concorde aircraft on harbor 
seals and gray seals (Halichoerus grypus). The authors noted that 
observed effects on heart rate were generally minor and not 
statistically significant; gray seal heart rates showed no change in 
response to booms, whereas harbor seals showed slightly elevated heart 
rates.
    Humans and terrestrial mammals subjected to prolonged exposure to 
noise can sometimes show physiological stress. However, even in well-
studied human and terrestrial mammal populations, noise-induced stress 
is not easily demonstrated. There have been no studies to determine 
whether noise-induced stress occurs in pinnipeds. If noise-induced 
stress does occur in marine mammals, it is expected to occur primarily 
in those exposed to chronic or frequent noise. It is very unlikely that 
it would occur in animals exposed to only a few, very brief noise 
events over the course of a year, as would be the case with these 
proposed activities.

Summary of Potential Effects on Marine Mammals

    Vehicle launches are characterized by sudden sound onsets, moderate 
to high peak sound levels (depending on the type of vehicle and 
distance), and short sound duration. Effects of vehicle launches on 
some pinnipeds in the Channel Islands have been studied. In most cases, 
where pinnipeds have been exposed to the sounds of large vehicle 
launches (such as the Titan IV from VAFB), animals did not flush into 
the sea unless the sound level to which they were exposed was 
relatively high or of an unusual duration or quality (e.g., the 
explosion of a Titan IV). Similarly, at SNI, the proportion of 
responding California sea lions and elephant seals to vehicle launches 
are significantly higher with increasing SELs; harbor seal reactions to 
launch sounds are more variable.
    Thus, responses of pinnipeds on beaches to acoustic disturbance 
arising from launches are highly variable. In addition, some species 
(such as harbor seals) are more reactive when hauled out than are other 
species (e.g., northern elephant seals). Responsiveness also varies 
with time of year and age class, with juvenile pinnipeds being more 
likely to react strongly and leave the haul-out site. While the 
reactions are variable and can involve occasional stampedes or other 
abrupt movements by some individuals, biological impacts of these 
responses appear to be limited. The responses are not likely to result 
in significant injury or mortality or long-term negative consequences 
to individuals or pinniped populations on SNI.
    Based on measurements of received sound levels during previous 
launches at SNI (e.g., Holst et al., 2005a,b; 2008), the Navy and NMFS 
expect that there may be some effects on hearing sensitivity (TTS) for 
a few of the pinnipeds present, but these effects are expected to be 
mild and reversible. Although it is possible that some launch sounds as 
measured close to the launchers may exceed the PTS criteria, it is 
unlikely that any pinnipeds would be close enough to the launchers to 
be exposed to sounds strong enough to cause PTS. Therefore, NMFS 
anticipates that pinnipeds hauled out during launches on SNI will only 
incur short-term, minimal Level B harassment.

Numbers of Marine Mammals Estimated to be Taken by Harassment

    The marine mammal species NMFS believes likely to be taken by Level 
B harassment incidental to vehicle launch operations from SNI are 
harbor seals, California sea lions, and northern elephant seals. All of 
these species are protected under the MMPA, and none are listed under 
the Endangered Species Act (ESA). Any takes are most likely to result 
from operational noise as launch vehicles pass near haul-out sites and/
or associated visual cues. As noted earlier, sightings of northern fur 
seals, Steller sea lions, and Guadalupe fur seals have been extremely 
rare or low on SNI. Therefore, no takes by harassment are anticipated 
for these three species incidental to the proposed activities.
    The Navy provisionally estimates that the following numbers of 
pinnipeds may be taken by Level B harassment annually: 474 elephant 
seals; 467 harbor seals; and 1,606 California sea lions. The animals 
affected may be the same individual animals or may be different 
individuals, depending on site fidelity. Based on the results of the 
marine mammal monitoring conducted by the Navy during the 2001-2007 
launch program, the estimated number of potential Level B harassment 
takes would actually be less than estimated or previously authorized. 
The criteria used by the Navy to estimate take numbers for the 2009-
2014 program were developed specifically for the launches identified in 
the specified activity and are based on monitoring data collected 
during the 2001-2007 launch program at the same location and involving 
the same rocket types. Section 7.7 of the Navy's application contains a 
full description of how they developed their take numbers (see 
ADDRESSES).
    With the incorporation of mitigation measures proposed later in 
this document, the Navy and NMFS expect that only Level B incidental 
harassment may occur as a result of the proposed activities and that 
these events will result in no detectable impact on marine mammal 
species or stocks or on their habitats.

Potential Effects of Specified Activities on Marine Mammal Habitat

    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. Harbor seals, California sea lions, and northern elephant 
seals use various beaches around SNI as places to rest, molt, and 
breed. These beaches consist of sand (e.g., Red Eye Beach), rock ledges 
(e.g., Phoca Reef), and rocky cobble (e.g., Vizcaino Beach). Pinnipeds 
continue to use beaches around the western end of SNI, and indeed are 
expanding their use of some beaches despite ongoing launch activities 
for many years. Thus, periodic launches do not prevent pinnipeds from 
using beaches.
    Pinnipeds do not feed when hauled out on these beaches, and the 
airborne launch sounds will not persist in the water near the island 
for more than a few seconds. Therefore, it is not expected that the 
launch activities will

[[Page 11898]]

have any impact on the food or feeding success of these pinnipeds.
    Boosters from vehicles (e.g., JATO bottles for BQM drone vehicles) 
may be jettisoned shortly after launch and fall on the island but not 
on the beaches. Fuel contained in these boosters is consumed rapidly 
and completely, so there would be no risk of contamination even in the 
very unlikely event that a booster did land on a beach. Overall, the 
proposed vehicle launch activity is not expected to cause significant 
impacts on habitats used by pinnipeds on SNI or on the food sources 
that these pinnipeds utilize.

Potential Effects of Specified Activities on Subsistence Needs

    NMFS has preliminarily determined that the issuance of an LOA for 
Navy target and missile launch activities on SNI would not have an 
unmitigable adverse impact on the availability of the affected species 
or stocks for subsistence uses since there are no such uses for these 
pinniped species in California.

Mitigation

    To avoid additional harassment to the pinnipeds on beach haul-out 
sites and to avoid any possible sensitizing and/or predisposing 
pinnipeds to greater responsiveness to the sights and sounds of a 
launch, the Navy will limit activities near the beaches in advance of 
launches. Existing safety rules for vehicle launches provide a built-in 
mitigation measure of this type: personnel are not normally allowed 
near any of the pinniped haul-out beaches that are located close to the 
flight track on the western end of SNI within several hours prior to 
launch. Also, because of the presence of colonies of sensitive seabirds 
(as well as pinniped haul-out sites) on western SNI, there are already 
special restrictions on personnel movements near beaches on which 
pinnipeds haul out. Furthermore, most of these beaches are closed to 
personnel year-round.
    The following mitigation measures have been incorporated into the 
proposed regulations: (1) The Navy must avoid, whenever possible, 
launch activities during harbor seal pupping season (February to 
April), unless constrained by factors including, but not limited to, 
human safety, national security, or for vehicle launch trajectory 
necessary to meet mission objectives; (2) the Navy must limit, whenever 
possible, launch activities during other pinniped pupping seasons, 
unless constrained by factors including, but not limited to, human 
safety, national security, or for vehicle launch trajectory necessary 
to meet mission objectives; (3) the Navy must not launch vehicles from 
the Alpha Complex at low elevation (less than 305 m [1,000 ft]) on 
launch azimuths that pass close to pinniped haul-out site(s) when 
occupied; (4) the Navy must avoid, where practicable, multiple vehicle 
launches in quick succession over haul-out sites when occupied, 
especially when young pups are present; and (5) the Navy must limit 
launch activities during nighttime hours, except when required by the 
test objectives (e.g., up to 10 nighttime launches for ABL testing per 
year).
    Additionally, during and for some time following each launch, 
personnel are not allowed near any of the pinniped haul-out beaches 
that are close to the flight track on the western end of SNI. Lastly, 
prior to and after launch operations, associated fixed-wing and rotary 
aircraft will maintain an altitude of at least 305 m (1,000 ft) when 
traveling near beaches on which pinnipeds are hauled out, except in 
emergencies or for real-time security incidents (e.g., search-and-
rescue, fire-fighting), which may require approaching pinniped haul-
outs and rookeries closer than 305 m (1,000 ft).
    If post-launch surveys determine that an injurious or lethal take 
of a marine mammal has occurred or there is an indication that the 
distribution, size, or productivity of the potentially affected 
pinniped populations has been affected, the launch procedure and the 
monitoring methods must be reviewed, in cooperation with NMFS, and, if 
necessary, appropriate changes must be made through modification to an 
LOA, prior to conducting the next launch of the same vehicle under that 
LOA.

Monitoring

    As part of its application, the Navy provided a proposed monitoring 
plan, similar to that adopted for previous Incidental Harassment 
Authorizations and regulations (see 66 FR 41834, August 9, 2001; 67 FR 
56271, September 3, 2002; 68 FR 52132, September 2, 2003), for 
assessing impacts to marine mammals from target and missile launch 
activities from SNI. This monitoring plan is described in detail in the 
Navy's application (see ADDRESSES).
    The Navy proposes to conduct the following monitoring during the 
first year under an LOA and regulations.

Land-based Monitoring

    In conjunction with a biological contractor, the Navy will continue 
its land-based monitoring program to assess effects on the three common 
pinniped species on SNI: northern elephant seals, harbor seals, and 
California sea lions. This monitoring will occur at three different 
sites of varying distance from the launch site before, during, and 
after each launch. The monitoring would be via autonomous video 
cameras. Pinniped behavior on the beach will be documented prior to, 
during, and following the launch. Additionally, new video equipment 
capable of obtaining video during night launches will be acquired for 
the ABL program.
    During the day of each missile launch, the observer would place 
three digital video cameras overlooking chosen haul-out sites. Each 
camera would be set to record a focal subgroup within the haul-out 
aggregation for a maximum of 4 hr or as permitted by the videotape 
capacity. Following a launch, video records will be made for up to 1 
hr. Observers will return to the observing sites as soon as it is safe 
to record the numbers and types of pinnipeds that are on the haul-
out(s).
    Following each launch, all digital recordings will be transferred 
to DVDs for analysis. A DVD player/computer with high-resolution 
freeze-frame and jog shuttle will be used to facilitate distance 
estimation, event timing, and characterization of behavior. Additional 
details of the field methods and video and data analysis can be found 
in the Navy's application.

Acoustical Measurements

    During each launch, the Navy would obtain calibrated recordings of 
the levels and characteristics of the received launch sounds. Acoustic 
data would be acquired using three Autonomous Terrestrial Acoustic 
Recorders (ATAR) at three different sites of varying distances from the 
target's flight path. ATARs can record sounds for extended periods 
(dependent on sampling rate) without intervention by a technician, 
giving them the advantage over traditional digital audio tape recorders 
should there be prolonged launch delays. To the extent possible, 
acoustic recording locations would correspond with the sites where 
video monitoring is taking place. The collection of acoustic data would 
provide information on the magnitude, characteristics, and duration of 
sounds that pinnipeds may be exposed to during a launch. In addition, 
the acoustic data can be combined with the behavioral data collected 
via the land-based monitoring program to determine if there is a dose-
response relationship between received sound levels and pinniped 
behavioral reactions. Once collected, sound files will be sent to the 
acoustical contractor for sound analysis. Additional details regarding 
the installation and calibration of the acoustic instruments

[[Page 11899]]

and analysis methods are provided in the Navy's application.

Reporting

    An interim technical report is proposed to be submitted to NMFS 60 
days prior to the expiration of each annual LOA issued under these 
regulations, along with a request for a follow-on annual LOA. This 
interim technical report will provide full documentation of methods, 
results, and interpretation pertaining to all monitoring tasks for 
launches during the period covered by the LOA. However, only 
preliminary information would be available to be included for any 
launches during the 60-day period immediately preceding submission of 
the interim report to NMFS.
    If a freshly dead or seriously injured pinniped is found during 
post-launch monitoring, the incident must be reported within 48 hours 
to the NMFS Office of Protected Resources and the NMFS Southwest 
Regional Office.
    The proposed 2009-2010 launch monitoring activities will constitute 
the eighth year of formal, concurrent pinniped and acoustical 
monitoring during launches from SNI. Following submission in 2010 of 
the interim report on the first phase of monitoring under an LOA, the 
Navy believes that it would be appropriate for the Navy and NMFS to 
discuss the scope for any additional launch monitoring work on SNI 
subsequent to the first LOA issued under these regulations. In 
particular, some biological or acoustic parameters may be documented 
adequately prior to or during the first LOA (2009-2010), and it may not 
be necessary to continue all aspects of the monitoring work after that 
period.
    In addition to annual LOA reports, NMFS proposes to require the 
Navy to submit a draft comprehensive final technical report to NMFS 180 
days prior to the expiration of the regulations. This technical report 
will provide full documentation of methods, results, and interpretation 
of all monitoring tasks for launches during the first four LOAs, plus 
preliminary information for launches during the first 6 months of the 
final LOA. A revised final technical report, including all monitoring 
results during the entire period of the Letter of Authorization will be 
due 90 days after the end of the period of effectiveness of the 
regulations.

ESA

    No species listed under the ESA are expected to be affected by 
these activities. Therefore, NMFS has determined that a section 7 
consultation under the ESA is not required. It should be noted however 
that SNI is the location to which southern sea otters have been 
translocated in an attempt to establish a population separate from that 
in central California. This experimental population may be affected by 
the target and missile launch activities at SNI. Sea otters are under 
the jurisdiction of the U.S. Fish and Wildlife Service (USFWS). Under 
Public Law 99-625, this experimental population of sea otters is 
treated as a proposed species for purposes of Section 7 when the action 
(as here) is defense related. Proposed species require an action agency 
to confer with NMFS or the USFWS under Section 7 of the ESA when the 
action is likely to jeopardize the continued existence of the species. 
The information available for the Navy's proposed activities described 
in this document or for NMFS' proposed action of promulgating 5-yr 
regulations and the subsequent issuance of LOAs to the Navy for those 
activities does not indicate that sea otters are likely to be 
jeopardized. Therefore, a consultation is not required.

National Environmental Policy Act

    NMFS has prepared a Draft EA analyzing the potential issuance of 
regulations and annual LOAs to the Navy for these proposed activities. 
The Draft EA will be made available for public comment concurrently 
with these proposed regulations (see ADDRESSES). NMFS will either 
finalize the EA and prepare a Finding of No Significant Impact or 
prepare an Environmental Impact Statement prior to issuance of the 
final rule.

Coastal Zone Management Act Consistency

    On February 14, 2001, by a unanimous vote, the California Coastal 
Commission (CCC) concluded that, with the monitoring and mitigation 
commitments the Navy has incorporated into their various testing and 
training activities on the Point Mugu Sea Range, including activities 
on SNI, and including the commitment to enable continuing CCC staff 
review of finalized monitoring plans and ongoing monitoring results, 
the activities are consistent with the marine resources, 
environmentally sensitive habitat, and water quality policies (Sections 
30230, 30240, and 30231) of the California Coastal Act (CCA). Since the 
activities described in these proposed regulations are analogous to 
those reviewed by the CCC in 2001, NMFS has determined that the 
activities described in this document are consistent to the maximum 
extent practicable with the enforceable policies of the CCA.

National Marine Sanctuaries Act

    According to the Navy, except for aircraft and vessel traffic 
transiting the area, none of the Navy's proposed activities would take 
place within the Channel Islands National Marine Sanctuary. On December 
8, 2008, NMFS contacted the National Ocean Service's Office of National 
Marine Sanctuaries (ONMS) regarding NMFS' action of promulgating 
regulations and issuing LOAs for the Navy activities described in the 
Navy's application and this document to determine whether or not NMFS' 
action is likely to destroy, cause the loss of, or injure any sanctuary 
resources. On December 12, 2008, the ONMS determined that no further 
consultation with NMFS was required on its proposed action as this 
action is not likely to destroy, cause the loss of, or injure any 
national marine sanctuary resources.

Preliminary Determinations

    NMFS has preliminarily determined that target and missile launch 
activities and aircraft and helicopter operations from SNI, as 
described in this document and in the application for regulations and 
subsequent LOAs, will result in no more than Level B harassment of 
Pacific harbor seals, California sea lions, and northern elephant 
seals. The effects of these military readiness activities from SNI will 
be limited to short term and localized changes in behavior, including 
temporarily vacating haul-outs, and possible TTS in the hearing of any 
pinnipeds that are in close proximity to a launch pad at the time of a 
launch. NMFS has also preliminarily determined that any takes will have 
no more than a negligible impact on the affected species and stocks. No 
take by injury and/or death is anticipated, and the potential for 
permanent hearing impairment is unlikely. Harassment takes will be at 
the lowest level practicable due to incorporation of the proposed 
mitigation measures mentioned previously in this document. NMFS has 
proposed regulations for these exercises that prescribe the means of 
effecting the least practicable adverse impact on marine mammals and 
their habitat and set forth requirements pertaining to the monitoring 
and reporting of that taking. Additionally, the vehicle launch 
activities and aircraft and helicopter operations will not have an 
unmitigable adverse impact on the availability of marine mammal stocks 
for subsistence use, as there are no subsistence uses of these three 
pinniped species in California waters.

[[Page 11900]]

Information Solicited

    NMFS requests interested persons to submit comments, information, 
and suggestions concerning the request and the content of the proposed 
regulations to authorize the taking (see ADDRESSES). Prior to 
submitting comments, NMFS recommends readers review NMFS' responses to 
comments made previously (see 66 FR 41834, August 9, 200