Takes of Marine Mammals Incidental to Specified Activities; Taking Marine Mammals Incidental to Space Vehicle and Missile Launch Operations at Kodiak Launch Complex, AK, 16311-16320 [2011-6886]
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Federal Register / Vol. 76, No. 56 / Wednesday, March 23, 2011 / Rules and Regulations
this activity and prescribe methods of
taking and other means of effecting the
least practicable adverse impact on
marine mammal species and their
habitat, and on the availability of the
Parts per
species for subsistence uses. In addition,
million
NMFS incorporates reporting and
monitoring requirements on these
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Compliance with the tolerances is to be
determined by measuring only
dichlormid (2,2-dichloro-N,N-di-2propenylacetamide).
Commodity
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Corn, sweet, forage ..................
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with husks removed ..............
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Effective March 22, 2011 to
March 22, 2016.
DATES:
[Docket No. 100806326–1088–02]
A copy of the AAC’s
application and other related documents
may be obtained by writing to P.
Michael Payne, Chief, Permits,
Conservation and Education Division,
Office of Protected Resources, National
Marine Fisheries Service, 1315 EastWest Highway, Silver Spring, MD
20910–3225, 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 final rule may
also be viewed, by appointment, during
regular business hours at the above
address.
RIN 0648–AY99
FOR FURTHER INFORMATION CONTACT:
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[FR Doc. 2011–6440 Filed 3–22–11; 8:45 am]
BILLING CODE 6560–50–P
DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric
Administration
50 CFR Part 217
Takes of Marine Mammals Incidental to
Specified Activities; Taking Marine
Mammals Incidental to Space Vehicle
and Missile Launch Operations at
Kodiak Launch Complex, AK
National Marine Fisheries
Service (NMFS), National Oceanic and
Atmospheric Administration (NOAA),
Commerce.
ACTION: Final rule.
AGENCY:
NMFS, upon application from
the Alaska Aerospace Corporation
(AAC), is issuing regulations to govern
the unintentional taking of small
numbers of marine mammals incidental
to rocket launches from the Kodiak
Launch Complex (KLC) on Kodiak
Island, AK. Issuance of regulations is
required by the Marine Mammal
Protection Act (MMPA) when the
Secretary of Commerce (Secretary), after
notice and opportunity for comment,
finds, as here, that such takes will have
a negligible impact on the species and
stocks of marine mammals and will not
have an unmitigable adverse impact on
their availability for subsistence uses.
These regulations do not authorize the
AAC’s rocket launch activities; such
authorization is not within the
jurisdiction of the Secretary. Rather,
these regulations govern the issuance of
Letters of Authorization (LOAs) for the
unintentional and incidental take of
marine mammals in connection with
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SUMMARY:
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ADDRESSES:
Michelle Magliocca, Office of Protected
Resources, NMFS, 301–713–2289, ext
123.
SUPPLEMENTARY INFORMATION:
Background
Sections 101(a)(5)(A) and (D) of the
MMPA (16 U.S.C. 1361 et seq.) direct
the Secretary of Commerce to allow,
upon request, the incidental, but not
intentional, taking of small numbers of
marine mammals by U.S. citizens who
engage in a specified activity (other than
commercial fishing) within a specified
geographical region if certain findings
are made and either regulations are
issued or, if the taking is limited to
harassment, a notice of a proposed
authorization is provided to the public
for review.
Authorization for incidental takings
shall be granted if NMFS finds that the
taking will have a negligible impact on
the identified species or stock(s), will
not have an unmitigable adverse impact
on the availability of the species or
stock(s) for subsistence uses (where
relevant), and if the permissible
methods of taking and requirements
pertaining to the mitigation, monitoring
and reporting of such takings are set
forth in the regulations. 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
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16311
species or stock through effects on
annual rates of recruitment or survival.’’
Except with respect to certain
activities not pertinent here, the MMPA
(16 U.S.C. 1362(18)(A)) defines
‘‘harassment’’ as:
Any act of pursuit, torment, or annoyance
which (i) has the potential to injure a marine
mammal or marine mammal stock in the wild
[Level A harassment]; or (ii) has the potential
to disturb a marine mammal or marine
mammal stock in the wild by causing
disruption of behavioral patterns, including,
but not limited to, migration, breathing,
nursing, breeding, feeding, or sheltering
[Level B harassment].
Summary of Request
On June 4, 2010, NMFS received a
complete application for regulations
from AAC for the taking of small
numbers of marine mammals incidental
to launching space launch vehicles,
long-range ballistic target missiles, and
other smaller missile systems at the
KLC. A proposed rule was published on
December 23, 2010 (75 FR 80773).
NMFS received 12 comments on the
proposed rule from eight private
citizens, the Kodiak Chamber of
Commerce, the Kodiak Island Borough
Mayor, the City of Kodiak Mayor, and
the Marine Mammal Commission
(Commission). The majority of the
comments supported the proposed rule.
These regulations will allow NMFS to
issue Letters of Authorization (LOAs) to
the AAC over a 5-year period. A full
description of the operations is
contained in the AAC’s application
which is available upon request (see
ADDRESSES) or at: https://
www.nmfs.noaa.gov/pr/permits/
incidental.htm#applications.
The AAC conducts space vehicle and
missile launches from the KLC, a
commercial spaceport that supports
civilian and Federal launch customers.
The facility occupies 3,717 acres of
State-owned lands on the Narrow Cape
Peninsula on the eastern side of Kodiak
Island, Alaska. The KLC primarily
supports launches of small to medium
space launch vehicles—which are those
used to boost satellites to orbit—ranging
in size from the small space-launch
Castor 120 motor (used in the Athena,
Minotaur IV, Minotaur V, and Taurus I
systems) to the under-development
medium-lift Taurus II. The KLC is also
configured to support launch of the
Minuteman I-derived Minotaur I Space
Launch System, and to support the
launch of long-range ballistic systems
such as the Polaris derived A–3 STARS,
the Minuteman-derived Minotaur II and
III, and the C–4. Launch operations are
authorized under license from the
Federal Aviation Administration (FAA),
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Office of the Associate Administrator for
Space Transportation, in accordance
with the facility’s Environmental
Assessment (EA), stipulations in the
EA’s Finding of No Significant Impact,
and in subsequent licenses.
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Description of the Specified Activity
The AAC anticipates that the KLC can
accommodate up to 45 launches, in
total, for the effective period of the
regulations. Annually, an average of
nine but maximum of 12 launches may
occur. Most of these vehicles are
expected to be of the Minotaur I through
V class, including civil versions of the
Castor 120 known as the Athena and
Taurus I, or smaller target vehicles. The
AAC estimates that of the 45 estimated
launches from KLC over the 5-year
period in consideration, 32 will be of
small space-launch and target vehicles
of the Castor 120 or smaller size, 10 will
be of THAAD or smaller size, and three
will be of the medium-lift Taurus II. A
summarized description of each class of
space launch and smaller launch
vehicles was published in the Federal
Register (75 FR 80774, December 23,
2010) and a full description can be
found online (https://
www.nmfs.noaa.gov/pr/permits/
incidental.htm#applications) within the
AAC’s application.
Launch Noise
Launch operations are a major source
of noise on Kodiak Island, as the
operation of launch vehicle engines
produce substantial sound pressures. In
air, all pressures are referenced to 20
micoPascals; therefore all dB levels in
this notice are provided re: 20 MicroPa,
unless otherwise noted. Generally, four
types of noise occur during a launch:
(1) Combustion noise; (2) jet noise from
interaction of combustion exhaust gases
with the atmosphere; (3) combustion
noise proper; and (4) sonic booms.
Sonic booms are not a concern for
pinnipeds on Ugak Island, as sonic
booms created by ascending rockets
launched from KLC reach the Earth’s
surface over deep ocean, well past the
edge of the Outer Continental Shelf
(OCS) (FAA 1996). Spent first-stage
motors from space lift missions (i.e.,
those going to orbit) fall to Earth at least
11, and possibly more than 300, miles
down range (well past the edge of the
OCS), depending on launch vehicle
(U.S. FAA 1996). A complete
description of launch noise measured
from Ugak Island, including previously
launched and recorded space vehicles,
can be found in the proposed rule (75
FR 80775, December 23, 2010).
Another component of the AAC’s
launches includes security overflights.
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In the days preceding the launch, these
occur approximately 3 times per day
based on the long-term average. Flights
associated with the launch will not
approach occupied pinniped haulouts
on Ugak Island by closer than 0.25 mile
(0.4 km), and will maintain a vertical
distance of 1,000 ft (305 m) from the
haulouts when within 0.5 miles (0.8
km), unless indications of human
presence or activity warrant closer
inspection of the area to assure that
national security interests are protected
in accordance with law. Over the
operational history of these flights,
aircraft have been operated within the
0.25-mile limit on two occasions; both
involved direct overflight of the Steller
sea lion haulout spit, which was
unoccupied each time the incursions
occurred.
Description of Marine Mammals in the
Area of the Specified Activity
The AAC’s current MMPA regulations
(71 FR 4297, January 26, 2006), which
are set to expire February 28, 2011,
require aerial surveys be conducted
before and after each launch to monitor
for presence and abundance of marine
mammals within the designated 6-mile
action area. In compliance with these
conditions, the AAC has completed
these surveys since 2006. Aerial survey
data indicate that Steller sea lions,
harbor seals, gray whales (Eschrichtius
robustus), humpback whales (Megaptera
novaeangliae), and sea otters (Enhydra
lutris) occur within the action area.
Although potentially present, cetaceans
within the action area are not expected
to be taken during the specified
activities. Airborne noise is generally
reflected at the sea surface outside of a
26° cone extending downward from the
ascending rocket (Richardson et al.,
1995); therefore, little sound energy
passes into the sea across the air-water
boundary. Submerged animals would
have to be directly underneath the
rocket to hear it, and given the
hypersonic velocity of launch vehicles
in the atmosphere, the duration of
sounds reaching any cetacean would be
discountable. In addition, all spent
rocket motors will fall into the open
ocean over deep water. Given the very
short time a cetacean is at the surface,
direct impact from spent motors can be
discounted as can any noise related
impacts. Based on these reasons, NMFS
does not anticipate take of cetaceans
incidental to the specified activity;
hence, they will not be discussed
further. Sea otters are managed by the
U.S. Fish and Wildlife Service; therefore
no take of sea otters is included in the
proposed regulations. As such, this
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species is not discussed further in this
final rule.
Steller Sea Lions
Steller sea lions are designated into
two stocks by NMFS. Those west of 144°
longitude, which includes the KLC area,
are listed as endangered under the ESA.
Historically, mature and sub-adult
males have used a spit on the
northwestern side of Ugak Island as a
post-breeding haulout. This spit is
located 3.5 miles from the launch pad
complex (see figure 4 and 5 in the
application). The historic occupancy
period ranges from June to September
(post breeding), with peak reported
numbers in the hundreds (Sease 1997;
ENRI 1995–1998). However, use has
declined in recent times in keeping with
general declines seen in the species as
a whole. The spit is designated a longterm trend count site by NMFS and has
been surveyed once yearly, with June as
the target, since the 1990s. Counts since
2000 have generally been zero (e.g.,
NMFS, 2009; Fritz and Stinchcomb,
2005), which is in line with the counts
from all other long-term trend count
sites in the Kodiak Archipelago over the
same time period. All of these other
long-term trend sites are far removed
from the 6-mile radius anticipated
impact area up range from KLC (i.e.,
areas opposite to the flight path), in
areas not exposed to launch noise.
Hence, Steller sea lion abundance has
declined throughout the region, not just
the area affected by launches, and the
losses are likely not a result of or
connected with the launches or use of
KLC.
Data from AAC’s aerial surveys over
the past four years also support low use
of the haulout. Since 1999, five
launches have occurred during the
Steller sea lion season. The spit haulout
has not been used by Steller sea lions
during launch-monitoring surveys since
1999 (ENRI, 2000, R&M, 2007a,b, 2008);
however, during recent launch surveys
one to several Stellar sea lions have
been observed from time-to-time
utilizing a supratidal rock on eastern
Ugak Island (termed East Ugak Rock) as
a haulout. Tables 2 and 4 in the
application provide a breakdown of
survey results per day. In summary, two
to eight sea lions were observed per day
on East Ugak Rock during surveys for
the FTG–02 launch (R&M, 2006b), and
one to five (per day) were observed
during the FTX–03 launch (R&M, 2008).
In addition, during one aerial survey
that was completed outside the June to
September timeframe (during the FTG–
05 campaign in December 2008), a
single Stellar sea lion was observed on
East Ugak Rock. East Ugak Rock is
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located farther east and to the south of
the KLC than Ugak Island; therefore, one
can assume launch generated sound
levels here are less than those at Ugak
Island.
Harbor Seals
Harbor seals are the most abundant
marine mammal species found within
the action area. Harbor seals are not
listed as threatened or endangered
under the ESA or as depleted under the
MMPA. Based on the AAC’s aerial
survey counts from launch monitoring
reports conducted since January 2006,
approximately 97% of all observed
harbor seals are found on the eastern
shore of Ugak Island, approximately 5
miles from the launch pad complex. The
eastern shore is backed by high steep
cliffs that reach up to 1,000 feet above
sea level. These cliffs form a visual and
acoustic barrier to rocket operations,
and alleviate effects on the species. This
conclusion is based on review of sound
pressure recordings made at the haulout
spit found on the island’s northwestern
shore, which showed surf and windgenerated sound pressures at sea level
were generally in the >70 dBA (SEL)
range on the clearest days (Cuccarese et
al., 1999, 2000). During inclement
weather periods ambient sound
pressures at sea level can exceed 100
dBA (SEL). The island’s eastern shore is
windward to prevailing winds and surf
noise is routinely high. Harbor seals
located on Ugak Island’s northern shore
are not as protected from launch noise,
and therefore may be harassed
incidental to the AAC’s specified
activity. However, harbor seal
abundance on the northern shores is
limited due to the lack of suitable
habitat (i.e., few beaches). During 30
aerial surveys conducted by the AAC
during six rocket launches from 2006 to
2008, no seals were observed on North
Ugak Island on 19 occasions. During
surveys when seals were present,
average abundance was 25 with a single
day count of 125 individuals.
Because physical access to Ugak
Island harbor seal haulouts is difficult
and dangerous, the only abundance and
behavior data of these seals have been
derived from aerial surveys conducted
by the AAC. Harbor seals generally
breed and molt where they haul out, so
it is assumed that both of these activities
take place on Ugak Island, and young
seals have routinely been seen there
during launch-related aerial surveys.
Pupping in Alaska takes place generally
in the May to June time frame; molting
occurs generally from June to October.
Both periods contain peaks in haulout
attendance. Total counts on Ugak Island
have increased steadily since the 1990s
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from several hundred (ENRI 1995–1998)
up to a peak of about 1,500 today (R&M
2007a, 2007b, 2008, 2009).
Potential Effects on Marine Mammals
As discussed above, launch
operations are a major source of noise
on Kodiak Island and can reach Steller
sea lion and harbor seal haulouts and
rookeries on Ugak Island. Marine
mammals produce sounds in various
contexts and use sound for various
biological functions including, but not
limited to: (1) Social interactions; (2)
foraging; (3) orientation; and (4)
predator detection. Interference with
producing or receiving these sounds
may result in adverse impacts. Audible
distance, or received levels (RLs), will
depend on the nature of the sound
source, ambient noise conditions, and
the sensitivity of the receptor to the
sound (Richardson et al., 1995). Type
and significance of marine mammal
reactions to noise are likely to be
dependent on a variety of factors
including, but not limited to, the
behavioral state (e.g., resting,
socializing, etc.) of the animal at the
time it receives the stimulus, frequency
of the sound, distance from the source,
and the level of the sound relative to
ambient conditions (Southall et al.,
2007). In general, marine mammal
impacts from loud noise can be
characterized as auditory and nonauditory.
Potential Auditory Impacts
Auditory impacts consist of injurious
(e.g., ruptured ear drums, permanent
threshold shift [PTS]) or non-injurious
(e.g., temporary threshold shift [TTS])
effects. There are no empirical data for
onset of PTS in any marine mammal;
therefore, PTS-onset must be estimated
from TTS-onset measurements and from
the rate of TTS growth with increasing
exposure levels above the level eliciting
TTS-onset. PTS is presumed to be likely
if the hearing threshold is reduced by ≥
40 dB (i.e., 40 dB of TTS).
Given the distance from the pad area
to Ugak Island and the measured sound
levels from the Castor 120 (101.4 dB),
for the loudest space vehicle used at the
KLC, pinniped auditory injury is not
anticipated. Further explanation was
provided in the proposed rule Federal
Register notice (75 FR 80777, December
23, 2010). Regarding TTS, although
hearing sensitivity was not apparently
affected during the ABR testing, that is
not to say that TTS did not occur, as
seals were tested approximately 2 hours
after launch, not immediately following
the launch. However, if TTS did occur,
hearing was fully recovered within 2
hours. In conclusion, NMFS has
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preliminarily determined PTS would
not occur in pinnipeds on Ugak Island
and TTS, although unlikely, may occur.
However, if pinnipeds on Ugak Island
experience TTS, full-hearing recovery is
expected shortly after exposure.
Potential Behavioral Impacts
To comply with their current
regulations, the AAC attempted to
collect video footage of pinnipeds
during launches; however, weather,
technical, and accessibility issues
prevented video coverage from being
obtained. Therefore, no immediate
responses of pinnipeds to the AAC’s
launch noise have been documented.
However, as discussed above, VAFB
researchers have been investigating the
short- and long-term effects of space
vehicle launch noise and sonic booms
on pinnipeds. As described in NMFS’
2009 EA, the percentage of seals that left
the haulout increased as noise level
increased up to approximately 100
decibels (dB) A-weighted SEL, after
which almost all seals left, although
recent data have shown that an
increasing percentage of seals may
remain on shore. Using time-lapse video
photography, VAFB discovered that
during four launch events, the seals that
reacted but remained on the haulout
were all adults. VAFB theorized that
adult seals may have habituated to
launch stimuli more so than lessexperienced younger seals; hence the
less-severe reactions. Further
information on this research can be
found within the proposed rule (75 FR
80777, December 23, 2010).
The behavioral data record for Steller
sea lions is small throughout the North
Pacific range and typically is focused on
reproductive behaviors. In general,
studies have shown that responses of
pinnipeds on beaches to acoustic
disturbance arising from rocket and
target missile launches are highly
variable. This variability may be due to
many factors, including species, age
class, and time of year.
The infrequent (approximately nine
times per year) and brief (no more than
1 minute as heard from Ugak Island)
nature of these sounds that would result
from a rocket launch is not expected to
alter the population dynamics of Steller
sea lions or harbor seals which utilize
Ugak Island as a haulout site. If
launches occur during the harbor seal
pupping period and harbor seals have
also chosen to pup on the north beach,
it is possible that harbor seal pups could
be injured or killed as a result of the
adults flushing in response to the rocket
noise, or the mother/pup bond could be
permanently broken. However, NMFS
does not expect harbor seal pup injury
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and mortality to occur to a great degree,
due to previous research studies that are
summarized in the proposed rule (75 FR
80778, December 23, 2010).
Finally, the KLC conducts
approximately three security overflights
per day in the days preceding a launch.
Several studies of both harbor seals and
Steller sea lions cited in Richardson et
al. (2005) suggest that these animals
respond significantly less to overflights
of both planes and helicopters that
occur above 305 m (0.2 mi). NMFS does
not anticipate harassment from
overflights to occur as they generally
remain at least 0.25 miles from a
haulout; however, if the pilot or crew
notice overt responses from pinnipeds
(e.g., flushing) to aircraft, this response
will be noted and reported to NMFS in
the flight report. Observations made of
any animals displaced by a security
overflight are reported to the
environmental monitoring team for
inclusion in their report of monitoring
results.
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Anticipated Effects on Habitat
Solid-fuel rocket boosters will fall
into the ocean away from any known or
potential haulouts. All sonic booms that
reach the earth’s surface are expected to
occur over open ocean, beyond the OCS.
Airborne launch sounds will mostly
reflect or refract from the water surface
and, except for sounds within a cone of
approximately 26 degrees directly below
the launch vehicle, will not penetrate
into the water column. The sounds that
do penetrate will not persist in the
water for more than a few seconds.
Overall, rocket launch activities from
the KLC are not expected to cause any
impacts to habitats used by marine
mammals, including pinniped haulouts,
or to their food sources.
Comments and Responses
On December 23, 2010 (75 FR 80773),
NMFS published a notice of proposed
rulemaking on the AAC’s request to take
marine mammals incidental to rocket
launches at KLC and requested
comments, information, and suggestions
concerning the request. During the 30day public comment period, NMFS
received comments from eight private
citizens, the Kodiak Chamber of
Commerce, the Kodiak Island Borough
Mayor, the City of Kodiak Mayor, and
the Commission. Six of the private
citizens—four of them residents of
Kodiak, Alaska—and all of the city/
borough officials wrote in support of the
proposed rule. One private citizen
expressed general opposition to
anything related to the military. The
remaining comments and NMFS’
responses are detailed below.
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Comment 1: The AAC should be
required to obtain video footage of the
harbor seal reactions to launches from
the KLC. Furthermore, NMFS does not
provide specific indications of what will
be reviewed or potentially modified
should the distribution, size, or
productivity of either pinniped
population be affected from the
launches.
Response: As explained in the
proposed rule, the AAC will be
purchasing and placing one remote livestreaming video system to overlook a
harbor seal haulout on the eastern side
of Ugak Island. The purpose is to
monitor for any behavioral reactions of
harbor seals to the launches. The
language about reviewing monitoring
data and potentially modifying
mitigation and monitoring requirements
is put in place as an adaptive
management measure. Data from aerial
surveys and camera footage will be
reviewed for unusual behavior, injury,
or death. Any modifications to the
mitigation or monitoring requirements
will be determined on a case-by-case
basis.
Comment 2: The Commission
recommends that NMFS include in its
final rule all of the applicant’s proposed
mitigation and monitoring measures,
including those described in the
preamble of the proposed rule.
Response: NMFS has included all of
the required mitigation and monitoring
measures in the final rule, including
those described in the preamble.
Comment 3: The Commission
recommends that NMFS require the
AAC to use a remote video-camera
system to monitor harbor seals on the
eastern side of Ugak Island during at
least five launches. If the cameras detect
any disturbance, then the Commission
recommends that the applicant and
NMFS consult to determine what
monitoring adjustments are needed and,
if the authorized harbor seal takes are
exceeded due to disturbance on the
eastern side of the island, the applicant
should consult with NMFS to determine
if amendments to the regulations or
letters of authorization are needed.
Response: The use of a remote videocamera system to monitor harbor seals
on the eastern side of Ugak Island
during at least five launches is a
required monitoring measure for the
AAC under this rulemaking. If any
disturbance to the animals’ behavior is
detected, the regulations require that the
AAC consult with NMFS to determine
if any mitigation or monitoring
modifications are necessary.
Furthermore, if the authorized harbor
seal takes are exceeded, the regulations
require that the AAC consult with
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NMFS to determine if amendments to
the regulations or letters of
authorization are needed.
Comment 4: The Commission
recommends that NMFS require
appropriate monitoring of Steller sea
lions before, during, and after launches
to determine if the launches are
disturbing the sea lions’ use of Ugak
Island and possibly discouraging more
sea lions from hauling out there.
Response: After the first five
launches, cameras may be repositioned
to monitor Steller sea lions on Ugak
Island. Monitoring of Stellers under the
previous rule (2006 to 2011) showed
one of the following: (1) No sea lions
present during a launch; (2) all sea lions
present became alert but did not move
immediately following a launch; or (3)
some sea lions present were flushed into
the water temporarily. Attempts will be
made by the AAC to capture further sea
lion behavioral responses at the time of
launch.
Comment 5: The Commission
recommends that NMFS advise the
applicant of the need to consult with the
Fish and Wildlife Service regarding the
potential incidental take of sea otters.
Response: The AAC is aware of the
Fish and Wildlife Service’s jurisdiction
over the incidental take of sea otters.
Mitigation
In order to issue an Incidental Take
Authorization (ITA) under section
101(a)(5)(A) of the MMPA, NMFS must
set forth the permissible methods of
taking pursuant to such activity, and
other means of effecting the least
practicable adverse impact on such
species or stock and its habitat, paying
particular attention to rookeries, mating
grounds, and areas of similar
significance, and on the availability of
such species or stock for taking for
certain subsistence uses.
To minimize impacts on pinnipeds at
haulout sites, NMFS is requiring the
following mitigation measures: (1)
Security overflights associated with the
launch will not approach occupied
pinniped haulouts on Ugak Island by
closer than 0.25 mile (0.4 km), and will
maintain a vertical distance of 1,000 ft
(305 m) from the haulouts when within
0.5 miles (0.8 km), unless indications of
human presence or activity warrant
closer inspection of the area to assure
that national security interests are
protected in accordance with law; (2)
the AAC will avoid launches during the
harbor seal pupping season (May 15 to
June 30), unless constrained by factors
including, but not limited to, human
safety and national security; and (3) if
launch monitoring detects pinniped
injury or death, or if long-term trend
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counts from quarterly aerial surveys
indicate that the distribution, size, or
productivity of the potentially affected
pinniped populations has been affected
due to the specified activity, the launch
procedures and the monitoring methods
will be reviewed, in cooperation with
NMFS, and, if necessary, appropriate
changes may be made through
modifications to a given LOA, prior to
conducting the next launch of the same
vehicle under that LOA.
NMFS carefully evaluated the
applicant’s proposed mitigation
measures and considered a range of
other measures in the context of
ensuring that NMFS prescribes the
means of effecting the least practicable
adverse impact on the affected marine
mammal species and stocks and their
habitat. Our evaluation of potential
measures included consideration of the
following factors in relation to one
another: (1) The manner and the degree
to which the successful implementation
of the measure is expected to minimize
adverse impacts to marine mammals; (2)
the proven or likely efficacy of the
specific measure to minimize adverse
impacts as planned; and (3) the
practicability of the measure for
applicant implementation, including
consideration of personnel safety, and
practicality of implementation. The
required mitigation measures take
scientific studies (Richardson et al.,
2005) of overflight effects on pinnipeds
into consideration. By avoiding
launches during the harbor seal pupping
season, the AAC will avoid all Level A
harassment and mortality, which is only
anticipated to occur as a result of pups
being trampled or separated from their
mothers. Lastly, the adaptive nature of
the proposed mitigation measures allow
for adjustments to be made if launch
monitoring or quarterly aerial surveys
indicate that impacts to the distribution,
size, or productivity of pinniped
populations are occurring.
Based on our evaluation of the
applicant’s proposed measures, as well
as other measures considered by NMFS
or recommended by the public during
the 30-day comment period, NMFS has
determined that the aforementioned
mitigation measures provide the means
of effecting the least practicable adverse
impacts on marine mammals species or
stocks and their habitat, paying
particular attention to rookeries, mating
grounds, and areas of similar
significance.
Monitoring and Reporting
In order to issue an ITA for an
activity, section 101(a)(5)(A) of the
MMPA states that NMFS must set forth
‘‘requirements pertaining to the
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monitoring and reporting of such
taking.’’ The MMPA implementing
regulations at 50 CFR 216.104(a)(13)
indicate that requests for ITAs 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.
The AAC plans to purchase and place
one remote live-streaming video system
overlooking one of the harbor seal
haulouts on the eastern side of Ugak
Island for the first five launches
conducted under these regulations to
verify the assumption that seals on the
eastern side of the island are not
affected by launches. Although animals
on the northern shore are more likely to
be affected by the action, this area is
predominantly a rocky reef tidal area
where seals haul out opportunistically,
either singly or in small numbers on
exposed rocks. There is more
confidence seals will be visible and able
to be monitored on the eastern side of
the island. After five launches, AAC and
NMFS will reassess the efficiency of the
camera system and possibly move it to
another location (e.g., the traditional
Steller sea lion haulout).
The selected haulout will be viewed
either in real time or via ‘‘tape’’ delay for
six days using the following schedule
where day length permits. The six-day
schedule will be roughly centered on
the day of launch, with launch day
being day three of the monitoring
schedule. The video stream will be
viewed by professional biologists for 4
hours each day with monitoring
centered on the time of launch on
launch day, and on low tide on the
other days. Detailed information on
when monitoring will occur around a
launch is provided in the AAC’s
application. Data collected from the live
stream video will include number of
animals observed, by age and sex class
when possible, behavior (e.g., resting),
animal response to launches, and reoccupation time if disturbed.
The video system was developed,
tested, and first put into service in
Alaska, and has proven itself over many
years of operation both in Alaska and
around the world. The video system is
all weather proven and autonomous,
drawing energy from a combination of
wind and solar generators. It features a
camera that includes a lens that can be
focused (zoom and pan) on command
and provides live-streaming video that
can be made available through Internet
access to interested researchers in real
time.
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The AAC will also carry out quarterly
aerial surveys to determine long-term
trend counts of Steller sea lions and
harbor seals within the action area.
Surveys will be flown midday and
centered around low tide for optimal
seal counts. The aircraft will survey
from a distance appropriate to count
seals or sea lions, but far enough away
to minimize harassment. Data collected
will include number of seals or sea lions
per haulout, by age class when possible,
and if any disturbance behavior is noted
from aircraft presence.
In addition to visual monitoring,
whenever a new class of rocket is flown
from the KLC, a real time sound
pressure record will be obtained for
documentation purposes and correlated
with the behavioral response record.
Two sound pressure monitors will be
used: one will be placed at the
established sound pressure recording
location known as Narrow Cape and the
other as close as practical to the remote
video system.
Estimated Take by Incidental
Harassment
Except with respect to certain
activities not pertinent here, the MMPA
(16 U.S.C. 1362(18)(A) defines
‘‘harassment’’ as:
any act of pursuit, torment, or annoyance
which (i) has the potential to injure a marine
mammal or marine mammal stock in the wild
[Level A harassment]; or (ii) has the potential
to disturb a marine mammal or marine
mammal stock in the wild by causing
disruption of behavioral patterns, including,
but not limited to, migration, breathing,
nursing, breeding, feeding, or sheltering
[Level B harassment].
As described above, Steller sea lions
hauled out on Ugak Island may become
alert or flush into the water in response
to launch noise. Sound exposure levels
from the loudest launch may reach
approximately 101.4 dBA at the
traditional Steller sea lion haulout.
Based on this recorded level and the fact
that audible launch noise will be very
short in duration, sea lions are not
expected to incur PTS, and the chance
of TTS is unlikely. No injury or
mortality of Stellar sea lions is
anticipated, nor is any authorized.
Therefore, NMFS authorizes Steller sea
lion take, by Level B harassment only,
incidental to launches from KLC.
Harbor seals of all age classes hauled
out on the northern side of Ugak Island
will likely react in a similar manner as
Steller sea lions (and may become alert
or flush into the water) to launches from
KLC. Therefore, harbor seals may be
taken by Level B harassment incidental
to rocket launch noise. However, during
the pupping season (May 15 to June 30),
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pups may also be injured, killed, or
separated from their mother during a
flushing event. Therefore, NMFS
authorizes Level A harassment and
mortality of harbor seal pups, should
launches during the harbor seal pupping
season be unavoidable.
As discussed above, security
overflights associated with a launch will
not closely approach or circle any sea
lion or seal haulout site. Therefore,
incidental take from this activity is not
anticipated. Should the pilot or crew on
the plane observe pinnipeds reacting to
their presence, the plane will increase
altitude and note the number of animals
reacting to the plane. This data will be
included in the AAC’s final marine
mammal report.
The AAC estimates that up to 45
launches may occur from the KLC over
the course of the 5-year period covered
by the proposed rulemaking. Annually,
the AAC estimates an average of nine
launches will occur. Most of these
vehicles are expected to be of the
Minotaur I through V class, including
civil versions of the Castor 120 known
as the Athena and Taurus I or smaller
target vehicles. The AAC estimates that
no more than one launch will occur
over a 4-week period, and it is likely the
frequency of launches will be less than
this estimate.
Based on aerial survey data, the AAC
estimates a maximum of ten Steller sea
lions could be present during launches
occurring during the Steller sea lion
season (the maximum number of
animals sighted during a survey of this
season has been eight). Any sea lions
present during the launches will be
adult or juvenile males; therefore, no
reproductive processes or pupping will
be affected by the specified activities.
Assuming that all nine launches (the
average number of launches predicted
by the AAC) occur during the Steller sea
lion season, that all nine launches
involve the Castor 120 (the loudest
vehicle expected to be flown from KLC
over the period to be covered by the
proposed regulations), and that there is
no habituation to rocket motor effects
with experience, then up to 90 takes by
harassment could occur per year (ten
animals/launch × nine launches).
However, it is more reasonable to
assume that a maximum of four
launches per year could occur during
the 2-month Steller sea lion season, and
that no more than eight Stellers would
be present at any given time (the
maximum number recorded). Therefore,
NMFS authorizes the take, by Level B
harassment, of 32 Steller sea lions per
year (eight animals × four launches).
The total number of harbor seals
present on Ugak Island ranges up to
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about 1,500, most of which are found on
the island’s eastern shore where they are
sheltered from launch effects by the
1,000-foot tall cliffs that stand between
their haulouts and the KLC. Relatively
few harbor seals use haulouts on the
northern side of the island across from
the KLC due to the lack of suitable
beaches. No seals were observed on
northern haulouts, which consist
primarily of isolated rocks, during 19 of
30 marine mammal surveys flown by
the AAC from 2006 to 2008. When
present, the majority of counts on
northern haulouts showed fewer than 25
individuals; however, a one-time high
count of about 125 animals on these
rocks has been made. Using the
conservative and rare high number of
125 as being a representative figure, the
AAC estimates that up to 125
individuals might be taken per launch
operation. Therefore, NMFS authorizes
1,125 harbor seal (125 seals/launch ×
nine launches/year) takes during launch
operations.
The actual number of pups taken by
Level A harassment or mortality is
difficult to quantify, as age class was not
identified during the AAC’s previous
monitoring efforts (age class distinction
will occur under the current monitoring
and reporting requirements). Given that
seals do not use the northern haulouts
in large numbers (as compared to the
protected eastern haulouts), the number
of pups on the area of the island
exposed to launch noise is likely low.
Actual numbers will likely be smaller
given the low and variable use of the
area by harbor seals.
To better determine the potential
number of pups on Ugak Island during
launches, NMFS consulted with Ms.
Kate Wynne, a marine mammal
specialist with the Alaska Sea Grant
Marine Advisory Program, who has
previously flown aerial surveys within
the action area. Her data, from the early
1990s, indicates that pup counts on the
northern side of Ugak Island averaged
approximately 17. Although this data is
not recent, it is the best available. NMFS
does not anticipate that all pups on a
haulout would be injured or killed
during a launch and, in fact, many may
not be taken by Level A harassment or
mortality. However, in the unlikely
event injury or mortality occurs, NMFS
authorizes 17 harbor seal pup takes by
Level A harassment or mortality,
annually, incidental to AAC’s activities.
Previous Activities and Monitoring
As previously discussed, under AAC’s
current regulations (valid February 27,
2006 through February 28, 2011) and
annual LOAs, AAC has been conducting
marine mammal monitoring within the
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action area before and after launch
events to satisfy the monitoring
requirements set forth in MMPA
authorizations. The objective of
monitoring Steller sea lions and Pacific
harbor seals is to detect any indications
of pinniped disturbance, injury, or
mortality resulting from KLC rocket
launches at the Ugak Island haulout site.
Monitoring requirements included: (1)
Conducting fixed-wing aerial surveys at
least one day prior to, immediately after,
and three days following any launches
taking place from June 15 through
September 30, weather permitting; (2)
installing a remote custom-designed,
closed-circuit, weatherproof, time-lapse
video camera system at the base of the
traditional Steller sea lion haulout
before any launch occurring from June
15 through September 30; and (3)
making an attempt to place a video
camera with zoom lens on the accessible
western end of the north-facing shore to
record harbor seal behavior on the
middle or eastern end of the shore, or
on the rocks offshore (recall that the
eastern side of Ugak Island—where the
majority of seals are—is completely
inaccessible to pedestrian or boat traffic
due to the high cliffs and violent surf).
The regulations also contained noise
monitoring requirements; these data are
discussed in the Description of the
Specified Activity section above. The
AAC complied with the noise
monitoring conditions contained within
the regulations and annual LOAs.
Further information on the AAC’s
previous activities and monitoring
results can be found within the
proposed rule (75 FR 80780, December
23, 2010).
NMFS has shifted its focus from
direct Steller sea lion to harbor seal
monitoring under these regulations. The
AAC will monitor harbor seal reactions
to rocket launches during the launch
itself via a type of camera system
currently used by the Alaska Sea Life
Center to monitor haulouts and
rookeries. The camera will be placed at
a harbor seal pupping location on Ugak
Island to better assess the likelihood
that harbor seal pups may be
abandoned, injured, or killed as a direct
result of a rocket launch disturbance.
The camera system will be installed and
operating if the AAC conducts a launch
during the harbor seal pupping season.
Unlike the previous system, this camera
system does not need to be retrieved to
acquire data and battery power is not
problematic. Therefore, the AAC can
place it at a harbor seal haulout during
good weather no matter the number of
days before a launch and does not have
to be concerned with retrieving it. These
factors will likely eliminate the previous
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issues with video monitoring designed
to detect pinniped reactions at the time
of the launch. In addition, the camera
system will have a zoom lens for better
viewing quality.
Negligible Impact and Small Numbers
Analysis and Determination
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.’’
In making a negligible impact
determination, NMFS considers (and
should explicitly address whenever
possible) the following: (1) Number of
anticipated mortalities; (2) number and
nature of anticipated injuries; (3)
number, nature, intensity, and duration
of Level B harassment; (4) is the nature
of the anticipated takes such that we
would expect it to actually impact rates
of recruitment or survival; (5) context in
which the takes occur; and (6) species
or stock status.
In the past few years, the AAC has
conducted no more than two launches
on an annual basis. Regardless, NMFS
has analyzed the specified activity to
include disturbance events of up to nine
launches per year as they anticipate the
capability to carry out more efficient
mission turn-around time over the
duration of the final regulations.
Mortalities and injuries are only
authorized for harbor seal pups, and
these are not expected due to small and
variable harbor seal populations using
the northern haulout sites, as well as the
nature of pups and the early bonds
formed between pups and mothers.
Level B harassment of Steller sea lions
is possible due to rocket launch noise,
but is considered unlikely based on
projected sound levels and the short
duration of the noise; therefore, rates of
sea lion recruitment or survival are not
expected to be impacted. Rates of harbor
seal recruitment or survival are also not
expected to be impacted due to the
limited number of mortalities or injuries
to harbor seal pups (less than one
percent of population). Due to the fact
that no sonic booms are audible from
Ugak Island, NMFS does not anticipate
the potential for PTS to occur and TTS
is unlikely, but possible. These
assumptions are justified from ABR data
collected at and around VAFB from
similar launch activities. Further, based
on aerial survey data, the harbor seal
population on this island is increasing.
Given that harbor seals are considered a
species that is easily disturbed, their
resilience to launch effects suggest any
impacts from launches are short-term
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and negligible. The amount of take the
AAC has requested, and NMFS
authorizes, is considered small (less
than one percent of Stellers and less
than three percent of harbor seals)
relative to the estimated stock
populations of 41,197 Steller sea lions
in the Western U.S. and 44,453 harbor
seals in the Gulf of Alaska.
Mitigation measures to reduce noise
from launches once in the air are
virtually impossible; however, the noise
generated on the launch pad during
ignition moves through a deep trench
(called a flame trench or flame bucket)
that diverts the noise/exhaust toward
the northwest (away from Ugak Island).
The primary method of minimizing
impacts to pinnipeds from launch noise
is to minimize the number of launches
when possible during sensitive times.
In addition, improved monitoring will
better enable the AAC and NMFS to
determine if impacts from rocket
launches are having short-term and
long-term impacts on the present day
pinniped populations on Ugak Island.
The camera system will be able to detect
immediate impacts from launch
exposure, including the number of
pinnipeds flushing at the haulout site,
while quarterly aerial surveys will aid
in determining long-term trends of
pinniped abundance. NMFS
conservatively anticipates a small
number of pups may be injured or killed
during a launch. However, there is no
empirical data to prove or disprove this
as no video monitoring of seals during
the launch has been successful (the one
time a video system was placed near the
haulout, no seals were observed). As
discussed previously, the population of
harbor seals on Ugak Island has
increased steadily from several hundred
in the 1990s (ENRI 1995–1998) to a peak
of about 1,500 today (R&M 2007a,
2007b, 2008, 2009). Therefore, NMFS
does not believe there will be any longterm impact on the health of the
population if pup mortality occurs from
launches. The required monitoring
measures contained within this notice
are specifically designed to, among
other things, determine if pup injury or
mortality is occurring (i.e., from
flushing, separation of mothers and
pups, etc.) due to rocket launches from
the AAC.
Based on the analysis contained
herein of the likely effects of the
specified activity on marine mammals
and their habitat, and taking into
consideration the implementation of the
mitigation and monitoring measures,
NMFS finds that space vehicle and
missile launches at the KLC will result
in the incidental take of small numbers
of marine mammals, but that the total
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taking will have a negligible impact on
the affected species or stocks.
Impact on Availability of Affected
Species for Taking for Subsistence Uses
There are no relevant subsistence uses
of marine mammals implicated by this
action. Therefore, NMFS has
determined that the total taking of
affected species or stocks will not have
an unmitigable adverse impact on the
availability of such species or stocks for
taking for subsistence uses.
Endangered Species Act (ESA)
The Steller sea lion is the only marine
mammal species under NMFS’
jurisdiction that is listed as endangered
under the ESA with confirmed or
possible occurrence in the action area.
In the 2003 Biological Opinion, NMFS
determined that the proposed actions
would not result in jeopardy to the
affected species or result in adverse
modification of critical habitat. In 2005,
the AAC, on behalf of the FAA,
consulted with NMFS, under Section 7
of the ESA, on the impacts of space
vehicle and rocket launches on Steller
sea lions. NMFS consulted internally
under the ESA on its proposed issuance
of the AAC’s 2006 MMPA regulations
and subsequent LOAs. NMFS also
consulted internally on the issuance of
the final regulations (effective from
March 2011, through February 2016) for
this activity under section 101(a)(5)(A)
of the MMPA. In a Biological Opinion
(BiOp), NMFS Alaska Region concluded
that the AAC’s activities at the KLC and
NMFS’ issuance of these regulations are
not likely to jeopardize the continued
existence of Steller sea lions or destroy
or adversely modify any designated
critical habitat.
NMFS Alaska Region will also issue
BiOps and associated incidental take
statements (ITSs) to NMFS’ Permits,
Conservation, and Recreation Division
to exempt the take (under the ESA) that
NMFS authorizes in the LOAs under the
MMPA. Because of the difference
between the statutes, it is possible that
ESA analysis of the applicant’s action
could produce a take estimate that is
different than the takes requested by the
applicant (and analyzed for
authorization by NMFS under the
MMPA process), despite the fact that the
same proposed action (i.e., number and
type of launches) was being analyzed
under each statute. When this occurs,
NMFS staff coordinates to ensure that
the most conservative (lowest) number
of takes is authorized. For the AAC’s
activities at the KLC, coordination with
the NMFS Alaska Region indicates that
they will likely allow for the same
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amount of take of Steller sea lions that
was requested by the applicant.
The ITS(s) issued for each LOA will
contain implementing terms and
conditions to minimize the effect of the
marine mammal take authorized
through the 2011 LOA (and subsequent
LOAs in 2012, 2013, 2014, and 2015).
With respect to listed marine mammals,
the terms and conditions of the ITSs
will be incorporated into the LOAs.
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National Environmental Policy Act
(NEPA)
In 1996, the FAA prepared an EA, and
subsequently issued a Finding of No
Significant Impact (FONSI), for the
AAC’s proposal to construct and operate
a launch site at Narrow Cape on Kodiak
Island, Alaska. Since 1998, the AAC has
provided monitoring reports related to
noise and marine mammal impacts
associated with ongoing rocket launches
from KLC. After reviewing the new
information contained in the monitoring
reports, and considering the
Commission’s comments that impacts to
harbor seals should be more
comprehensively addressed, NMFS
decided that a more current
environmental analysis was necessary.
In 2005, NMFS prepared an EA and
associated FONSI on the Promulgation
of Regulations Authorizing Take of
Marine Mammals Incidental to Rocket
Launches at Kodiak Launch Complex,
Alaska, and the Issuance of Subsequent
Letters of Authorization. NMFS found
that the promulgation of a 5-year
rulemaking in 2006 and issuance of
subsequent LOAs would not
significantly impact the quality of the
human environment, and therefore
issued a FONSI. Accordingly,
preparation of an Environmental Impact
Statement or Supplemental
Environmental Impact Statement for
this action was not necessary. NMFS
has determined that because neither the
action nor the environmental baseline in
the area has changed significantly from
that analyzed in previous NEPA
documents, further analysis under
NEPA is not necessary for issuance of
regulations and subsequent LOAs
extending into 2016.
Classification
The Office of Management and Budget
(OMB) has determined that this
proposed rule is not significant for
purposes of Executive Order 12866.
Good cause exists to waive the 30-day
delay in effectiveness for this rule
pursuant to 5 U.S.C. 553(d), because
delaying the rule’s effectiveness is
contrary to the public interest and is
unnecessary. While there are no
launches specifically scheduled for
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March 2011, the U.S. Air Force has told
the AAC to be prepared for a potential
launch as early as March. Because these
launches may be necessary for national
security, it is in the public’s interest to
have these regulations take effect
immediately, before the AAC’s current
regulations expire on February 28, 2011.
The AAC has requested a waiver of the
30-day delay in effectiveness for this
rule in order to ensure that the rule goes
into effect March 1, 2011, the day after
the current regulations expire. A launch
delay would lead to increased risk for
personnel if there is increased handling
time for hazardous materials or
ordnance that has to be deactivated or
offloaded, depending on the stage of
launch preparations at the time of delay.
Delaying this initial launch could also
delay other scheduled launches for the
following months. Additionally, the
measures contained in this final rule are
substantially similar to the measures
contained in the five-year rule that
expires on February 28, 2011.
Accordingly, delaying the effectiveness
of these rules is not necessary to provide
time to allow the affected entities to
come into compliance with the rules.
Moreover, this rule does not impose any
requirements or obligations on the
public. For these reasons, there is good
cause to waive the 30-day delay in
effectiveness of this rule.
Pursuant to section 605(b) of the
Regulatory Flexibility Act (RFA), the
Chief Counsel for Regulation of the
Department of Commerce has certified
to the Chief Counsel for Advocacy of the
Small Business Administration that this
final rule will not have a significant
economic impact on a substantial
number of small entities. A description
of this final rule and its purpose are
found in the preamble to this rule, and
are not repeated here. NMFS received
no comments or questions regarding this
certification. For a copy of the
certification, see ADDRESSES.
Notwithstanding any other provision
of law, no person is required to respond
to nor shall a person be subject to a
penalty for failure to comply with a
collection of information subject to the
requirements of the Paperwork
Reduction Act (PRA) unless that
collection of information displays a
currently valid OMB control number.
This rule contains a collection-ofinformation requirement subject to the
provisions of the PRA. This collection
has been approved previously by OMB
under section 3504(b) of the PRA issued
under OMB control number 0648–0151,
which includes applications for LOAs
and reports.
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List of Subjects in 50 CFR Part 217
Exports, Fish, Imports, Indians,
Labeling, Marine mammals, Penalties,
Reporting and recordkeeping
requirements, Seafood, Transportation.
Dated: February 16, 2011.
Eric C. Schwaab,
Assistant Administrator for Fisheries,
National Marine Fisheries Service.
For reasons set forth in the preamble,
50 CFR part 217 is amended as follows:
PART 217—REGULATIONS
GOVERNING THE TAKING AND
IMPORTING OF MARINE MAMMALS
1. The authority citation for part 217
continues to read as follows:
■
Authority: 16 U.S.C. 1361 et seq.
2. Subpart H is added to read as
follows:
■
Subpart H—Taking of Marine Mammals
Incidental to Space Vehicle and Missile
Launches at Kodiak Launch Complex,
Alaska
Sec.
217.70 Specified activity and specified
geographical region.
217.71 Effective dates.
217.72 Permissible methods of taking.
217.73 Prohibitions.
217.74 Mitigation.
217.75 Requirements for monitoring and
reporting.
217.76 Letter of Authorization.
217.77 Renewal of a Letter of Authorization
and adaptive management.
217.78 Modifications to a Letter of
Authorization.
Subpart H—Taking of Marine Mammals
Incidental to Space Vehicle and Missile
Launches at Kodiak Launch Complex,
Alaska
§ 217.70 Specified activity and specified
geographical region.
(a) Regulations in this subpart apply
only to the incidental taking of marine
mammals specified in paragraph (b) of
this section by U.S. citizens engaged in
space vehicle and missile launch
activities at the Kodiak Launch Complex
on Kodiak Island, Alaska.
(b) The incidental take of marine
mammals under the activity identified
in paragraph (a) of this section is limited
to 32 juvenile and adult Steller sea lions
(Eumetopius jubatus), 1,125 Pacific
harbor seals (Phoca vitulina) of all ages,
and 17 harbor seal pups.
§ 217.71
Effective dates.
Regulations in this subpart are
effective from March 22, 2011 through
March 22, 2016.
§ 217.72
Permissible methods of taking.
(a) Under a Letter of Authorization
issued pursuant to § 216.106 of this
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chapter, the Alaska Aerospace
Corporation and its contractors may
incidentally, but not intentionally, take
Steller sea lions and Pacific harbor seals
by Level B harassment and harbor seal
pups by Level A harassment or
mortality in the course of conducting
space vehicle and missile launch
activities within the area described in
§ 217.70(a), provided all terms,
conditions, and requirements of these
regulations and such Letter of
Authorization are complied with.
(b) The activities identified in
§ 217.70(a) must be conducted in a
manner that minimizes, to the greatest
extent practicable, adverse impacts on
marine mammals and their habitat.
§ 217.73
Prohibitions.
The following activities are
prohibited:
(a) The taking of a marine mammal
that is other than unintentional.
(b) The violation of, or failure to
comply with, the terms, conditions, and
requirements of this subpart or a Letter
of Authorization issued under § 216.106
of this chapter.
(c) The incidental taking of any
marine mammal of a species not
specified, or in a manner not
authorized, in this subpart.
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§ 217.74
Mitigation.
(a) The activity identified in
§ 217.70(a) must be conducted in a
manner that minimizes, to the greatest
extent practicable, adverse impacts on
marine mammals and their habitats.
When conducting operations identified
in § 217.70(a), the mitigation measures
contained in the Letter of Authorization
issued under §§ 216.106 of this chapter
and 217.76 must be implemented. These
mitigation measures include (but are not
limited to):
(1) Security overflights by helicopter
associated with a launch will not
approach occupied pinniped haulouts
on Ugak Island by closer than 0.25 mile
(0.4 km), and will maintain a vertical
distance of 1000 ft (305 m) from the
haulouts when within 0.5 miles (0.8
km), unless indications of human
presence or activity warrant closer
inspection of the area to assure that
national security interests are protected
in accordance with law;
(2) For missile and rocket launches,
holders of Letters of Authorization must
avoid launches during the harbor seal
pupping season of May 15 through June
30, except when launches are necessary
for the following purposes: human
safety, national security, space vehicle
launch trajectory necessary to meet
mission objectives, or other purposes
related to missile or rocket launches.
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(3) All flights by fixed-wing aircraft
associated with the marine mammal
abundance quarterly surveys must
maintain a minimum altitude of 500 ft
(152 m) and remain 0.25 miles from
recognized seal haulouts.
(4) If launch monitoring or quarterly
aerial surveys indicate that the
distribution, size, or productivity of the
potentially affected pinniped
populations has been affected due to the
specified activity, the launch
procedures and the monitoring methods
will be reviewed, in cooperation with
NMFS, and, if necessary, appropriate
changes may be made through
modifications to a given LOA, prior to
conducting the next launch of the same
vehicle under that LOA.
(5) Additional mitigation measures as
contained in a Letter of Authorization.
(b) [Reserved]
§ 217.75 Requirements for monitoring and
reporting.
(a) Holders of Letters of Authorization
issued pursuant to §§ 216.106 of this
chapter and 217.76 for activities
described in § 217.70(a) are required to
cooperate with NMFS, and any other
Federal, State, or local agency with
authority to monitor the impacts of the
activity on marine mammals. Unless
specified otherwise in the Letter of
Authorization, the Holder of the Letter
of Authorization must notify the
Administrator, Alaska Region, NMFS,
by letter, e-mail or telephone, prior to
each launch. If the authorized activity
identified in § 217.70(a) is thought to
have resulted in the take of marine
mammals not identified in § 217.70(b),
then the Holder of the Letter of
Authorization must notify the Director,
Office of Protected Resources, NMFS, or
designee, by telephone (301–713–2289),
within 48 hours of the discovery of the
take.
(b) Holders of Letters of Authorization
must designate qualified protected
species observers, approved in advance
by NMFS, as specified in the Letter of
Authorization, to:
(1) Deploy for AAC a remote camera
system designed to detect pinniped
responses to rocket launches for at least
the first five launches conducted under
these regulations. AAC will conduct
visual monitoring for at least 2 hours
before, during, and 2 hours after launch;
(2) Ensure a remote camera system
will be in place and operating in a
location which allows visual monitoring
of a harbor seal rookery, if a launch
during the harbor seal pupping season
cannot be avoided;
(3) Relocate the camera system to or
re-aim the camera system on another
haulout to be chosen in cooperation
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16319
with NMFS after the first five launches
with harbor seals present;
(4) Review and log pinniped presence,
behavior, and re-occupation time data
from the visual footage obtained from
the remote camera system and report
results to NMFS within 90 days post
launch;
(5) Obtain, whenever a new class of
rocket is flown from the Kodiak Launch
Complex, a real-time sound pressure
and sound exposure record for
documentation purposes and to
correlate with the behavioral response
record. Two monitors shall be used: one
shall be placed at the established
recording location known as Narrow
Cape, and the other as close as practical
to the remote video system;
(6) Conduct quarterly aerial surveys,
ideally during midday coinciding with
low tide, to obtain data on pinniped
presence, abundance, and behavior
within the action area to determine
long-term trends in pinniped haulout
use. Results of these quarterly surveys
will be reported once as part of the yearend summary report that will
accompany the request for a new LOA.
(c) Holders of Letters of Authorization
must conduct additional monitoring as
required under an annual Letter of
Authorization.
(d) Holders of Letters of Authorization
must submit a report to the Alaska
Region Administrator, NMFS, within 90
days after each launch. This report must
contain the following information:
(1) Date(s) and time(s) of the launch;
(2) Location of camera system and
acoustic recorders (if used);
(3) Design of the monitoring program
and a description of how data is stored
and analyzed; and
(4) Results of the monitoring program,
including, but not necessarily limited
to:
(i) Numbers of pinnipeds, by species
and age class (if possible), present on
the haulout prior to commencement of
the launch;
(ii) Numbers of pinnipeds, by species
and age class (if possible), that may have
been harassed, including the number
that entered the water as a result of
launch noise;
(iii) The length of time pinnipeds
remained off the haulout during postlaunch monitoring;
(iv) Number of harbor seal pups that
may have been injured or killed as a
result of the launch; and
(v) Other behavioral modifications by
pinnipeds that were likely the result of
launch noise.
(5) Results of sound pressure and
sound exposure level monitoring will be
reported in flat weighted, A-weighted,
and peak measurements.
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(e) An annual report must be
submitted at the time of request for a
renewal of the Letter of Authorization;
it will include results of the aerial
quarterly trend counts of pinnipeds at
Ugak Island.
(f) A final report must be submitted at
least 90 days prior to expiration of these
regulations if new regulations are sought
or 180 days after expiration of
regulations. This report will:
(1) Summarize the activities
undertaken and the results reported in
all previous reports;
(2) Assess the impacts of launch
activities on pinnipeds within the
action area, including potential for pup
injury and mortality; and
(3) Assess the cumulative impacts on
pinnipeds and other marine mammals
from multiple rocket launches.
§ 217.76
Letter of Authorization.
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(a) A Letter of Authorization, unless
suspended or revoked, will be valid for
a period of time specified in the Letter
of Authorization, but a Letter of
Authorization may not be valid beyond
the effective period of the regulations.
(b) A Letter of Authorization with a
period of validity less than the effective
period of the regulations in this subpart
may be renewed subject to renewal
conditions in § 217.76.
(c) A Letter of Authorization will set
forth:
(1) The number of marine mammals,
by species and age class, authorized to
be taken;
(2) Permissible methods of incidental
taking;
(3) Specified geographical region;
(4) Means of effecting the least
practicable adverse impact on the
species of marine mammals authorized
for taking and its habitat; and
(5) Requirements for monitoring and
reporting incidental takes.
(d) Issuance of a Letter of
Authorization will be based on a
determination that the total taking by
the activity as a whole will have no
more than a negligible impact on the
affected species or stocks of marine
mammal(s).
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(e) Notice of issuance or denial of a
Letter of Authorization will be
published in the Federal Register
within 30 days of a determination.
§ 217.77 Renewal of a Letter of
Authorization and adaptive management.
(a) A Letter of Authorization issued
under § 216.106 of this chapter and
§ 217.76 for the activity identified in
§ 217.70(a) will be renewed annually
upon:
(1) Notification to NMFS that the
activity described in the application for
a Letter of Authorization submitted
under § 217.76 will be undertaken and
that there will not be a substantial
modification to the described activity,
mitigation, or monitoring undertaken
during the upcoming season;
(2) Timely receipt of and acceptance
by NMFS of the monitoring reports
required under § 217.75;
(3) A determination by NMFS that the
mitigation, monitoring, and reporting
measures required under §§ 217.74 and
217.75 and the Letter of Authorization
were undertaken and will be undertaken
during the upcoming period of validity
of a renewed Letter of Authorization;
and
(4) A determination that the number
of marine mammals taken by the
activity will have no more than a
negligible impact on the affected species
or stocks of marine mammal(s), and that
the level of taking will be consistent
with the findings made for the total
taking allowable under these
regulations.
(b) If a request for a renewal of a
Letter of Authorization issued under
§§ 216.106 and 216.128 of this chapter
indicates that a substantial modification
to the described work, mitigation, or
monitoring undertaken during the
upcoming season will occur, NMFS will
provide the public a period of 30 days
to review and comment on the request.
Review and comment on renewals of
Letters of Authorization are restricted
to:
(1) New cited information and data
indicating that the determinations made
in this document are in need of
reconsideration; and
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(2) Proposed changes to the mitigation
and monitoring requirements contained
in these regulations or in the current
Letter of Authorization.
(c) A notice of issuance or denial of
a renewal of a Letter of Authorization
will be published in the Federal
Register within 30 days of a
determination.
(d) NMFS, in response to new
information and in consultation with
the AAC, may modify the mitigation or
monitoring measures in subsequent
LOAs if doing so creates a reasonable
likelihood of more effectively
accomplishing the goals of mitigation or
monitoring set forth in the preamble of
these regulations. Below are some of the
possible sources of new data that could
contribute to the decision to modify the
mitigation or monitoring measures:
(1) Results from the AAC’s monitoring
from the previous year.
(2) Results from general marine
mammal and sound research.
§ 217.78 Modifications to a Letter of
Authorization.
(a) Except as provided in paragraph
(b) of this section, no substantive
modification (including withdrawal or
suspension) to a Letter of Authorization
issued pursuant to the provisions of this
subpart shall be made by NMFS until
after notification and an opportunity for
public comment has been provided. A
renewal of a Letter of Authorization
under § 217.77 without modification is
not considered a substantive
modification.
(b) If the Assistant Administrator
determines that an emergency exists
that poses a significant risk to the wellbeing of the species or stocks of marine
mammals specified in § 217.70(b), a
Letter of Authorization may be
substantively modified without prior
notification and an opportunity for
public comment. Notification will be
published in the Federal Register
within 30 days subsequent to the action.
[FR Doc. 2011–6886 Filed 3–22–11; 8:45 am]
BILLING CODE 3510–22–P
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[Federal Register Volume 76, Number 56 (Wednesday, March 23, 2011)]
[Rules and Regulations]
[Pages 16311-16320]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: 2011-6886]
=======================================================================
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DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric Administration
50 CFR Part 217
[Docket No. 100806326-1088-02]
RIN 0648-AY99
Takes of Marine Mammals Incidental to Specified Activities;
Taking Marine Mammals Incidental to Space Vehicle and Missile Launch
Operations at Kodiak Launch Complex, AK
AGENCY: National Marine Fisheries Service (NMFS), National Oceanic and
Atmospheric Administration (NOAA), Commerce.
ACTION: Final rule.
-----------------------------------------------------------------------
SUMMARY: NMFS, upon application from the Alaska Aerospace Corporation
(AAC), is issuing regulations to govern the unintentional taking of
small numbers of marine mammals incidental to rocket launches from the
Kodiak Launch Complex (KLC) on Kodiak Island, AK. Issuance of
regulations is required by the Marine Mammal Protection Act (MMPA) when
the Secretary of Commerce (Secretary), after notice and opportunity for
comment, finds, as here, that such takes will have a negligible impact
on the species and stocks of marine mammals and will not have an
unmitigable adverse impact on their availability for subsistence uses.
These regulations do not authorize the AAC's rocket launch activities;
such authorization is not within the jurisdiction of the Secretary.
Rather, these regulations govern the issuance of Letters of
Authorization (LOAs) for the unintentional and incidental take of
marine mammals in connection with this activity and prescribe methods
of taking and other means of effecting the least practicable adverse
impact on marine mammal species and their habitat, and on the
availability of the species for subsistence uses. In addition, NMFS
incorporates reporting and monitoring requirements on these activities.
DATES: Effective March 22, 2011 to March 22, 2016.
ADDRESSES: A copy of the AAC's application and other related documents
may be obtained by writing 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, 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 final rule may also be viewed, by appointment, during
regular business hours at the above address.
FOR FURTHER INFORMATION CONTACT: Michelle Magliocca, Office of
Protected Resources, NMFS, 301-713-2289, ext 123.
SUPPLEMENTARY INFORMATION:
Background
Sections 101(a)(5)(A) and (D) of the MMPA (16 U.S.C. 1361 et seq.)
direct the Secretary of Commerce to allow, upon request, the
incidental, but not intentional, taking of small numbers of marine
mammals by U.S. citizens who engage in a specified activity (other than
commercial fishing) within a specified geographical region if certain
findings are made and either regulations are issued or, if the taking
is limited to harassment, a notice of a proposed authorization is
provided to the public for review.
Authorization for incidental takings shall be granted if NMFS finds
that the taking will have a negligible impact on the identified species
or stock(s), will not have an unmitigable adverse impact on the
availability of the species or stock(s) for subsistence uses (where
relevant), and if the permissible methods of taking and requirements
pertaining to the mitigation, monitoring and reporting of such takings
are set forth in the regulations. NMFS has defined ``negligible
impact'' in 50 CFR 216.103 as `` * * * an impact resulting from the
specified activity that cannot be reasonably expected to, and is not
reasonably likely to, adversely affect the species or stock through
effects on annual rates of recruitment or survival.''
Except with respect to certain activities not pertinent here, the
MMPA (16 U.S.C. 1362(18)(A)) defines ``harassment'' as:
Any act of pursuit, torment, or annoyance which (i) has the
potential to injure a marine mammal or marine mammal stock in the
wild [Level A harassment]; or (ii) has the potential to disturb a
marine mammal or marine mammal stock in the wild by causing
disruption of behavioral patterns, including, but not limited to,
migration, breathing, nursing, breeding, feeding, or sheltering
[Level B harassment].
Summary of Request
On June 4, 2010, NMFS received a complete application for
regulations from AAC for the taking of small numbers of marine mammals
incidental to launching space launch vehicles, long-range ballistic
target missiles, and other smaller missile systems at the KLC. A
proposed rule was published on December 23, 2010 (75 FR 80773). NMFS
received 12 comments on the proposed rule from eight private citizens,
the Kodiak Chamber of Commerce, the Kodiak Island Borough Mayor, the
City of Kodiak Mayor, and the Marine Mammal Commission (Commission).
The majority of the comments supported the proposed rule. These
regulations will allow NMFS to issue Letters of Authorization (LOAs) to
the AAC over a 5-year period. A full description of the operations is
contained in the AAC's application which is available upon request (see
ADDRESSES) or at: https://www.nmfs.noaa.gov/pr/permits/incidental.htm#applications.
The AAC conducts space vehicle and missile launches from the KLC, a
commercial spaceport that supports civilian and Federal launch
customers. The facility occupies 3,717 acres of State-owned lands on
the Narrow Cape Peninsula on the eastern side of Kodiak Island, Alaska.
The KLC primarily supports launches of small to medium space launch
vehicles--which are those used to boost satellites to orbit--ranging in
size from the small space-launch Castor 120 motor (used in the Athena,
Minotaur IV, Minotaur V, and Taurus I systems) to the under-development
medium-lift Taurus II. The KLC is also configured to support launch of
the Minuteman I-derived Minotaur I Space Launch System, and to support
the launch of long-range ballistic systems such as the Polaris derived
A-3 STARS, the Minuteman-derived Minotaur II and III, and the C-4.
Launch operations are authorized under license from the Federal
Aviation Administration (FAA),
[[Page 16312]]
Office of the Associate Administrator for Space Transportation, in
accordance with the facility's Environmental Assessment (EA),
stipulations in the EA's Finding of No Significant Impact, and in
subsequent licenses.
Description of the Specified Activity
The AAC anticipates that the KLC can accommodate up to 45 launches,
in total, for the effective period of the regulations. Annually, an
average of nine but maximum of 12 launches may occur. Most of these
vehicles are expected to be of the Minotaur I through V class,
including civil versions of the Castor 120 known as the Athena and
Taurus I, or smaller target vehicles. The AAC estimates that of the 45
estimated launches from KLC over the 5-year period in consideration, 32
will be of small space-launch and target vehicles of the Castor 120 or
smaller size, 10 will be of THAAD or smaller size, and three will be of
the medium-lift Taurus II. A summarized description of each class of
space launch and smaller launch vehicles was published in the Federal
Register (75 FR 80774, December 23, 2010) and a full description can be
found online (https://www.nmfs.noaa.gov/pr/permits/incidental.htm#applications) within the AAC's application.
Launch Noise
Launch operations are a major source of noise on Kodiak Island, as
the operation of launch vehicle engines produce substantial sound
pressures. In air, all pressures are referenced to 20 micoPascals;
therefore all dB levels in this notice are provided re: 20 MicroPa,
unless otherwise noted. Generally, four types of noise occur during a
launch: (1) Combustion noise; (2) jet noise from interaction of
combustion exhaust gases with the atmosphere; (3) combustion noise
proper; and (4) sonic booms. Sonic booms are not a concern for
pinnipeds on Ugak Island, as sonic booms created by ascending rockets
launched from KLC reach the Earth's surface over deep ocean, well past
the edge of the Outer Continental Shelf (OCS) (FAA 1996). Spent first-
stage motors from space lift missions (i.e., those going to orbit) fall
to Earth at least 11, and possibly more than 300, miles down range
(well past the edge of the OCS), depending on launch vehicle (U.S. FAA
1996). A complete description of launch noise measured from Ugak
Island, including previously launched and recorded space vehicles, can
be found in the proposed rule (75 FR 80775, December 23, 2010).
Another component of the AAC's launches includes security
overflights. In the days preceding the launch, these occur
approximately 3 times per day based on the long-term average. Flights
associated with the launch will not approach occupied pinniped haulouts
on Ugak Island by closer than 0.25 mile (0.4 km), and will maintain a
vertical distance of 1,000 ft (305 m) from the haulouts when within 0.5
miles (0.8 km), unless indications of human presence or activity
warrant closer inspection of the area to assure that national security
interests are protected in accordance with law. Over the operational
history of these flights, aircraft have been operated within the 0.25-
mile limit on two occasions; both involved direct overflight of the
Steller sea lion haulout spit, which was unoccupied each time the
incursions occurred.
Description of Marine Mammals in the Area of the Specified Activity
The AAC's current MMPA regulations (71 FR 4297, January 26, 2006),
which are set to expire February 28, 2011, require aerial surveys be
conducted before and after each launch to monitor for presence and
abundance of marine mammals within the designated 6-mile action area.
In compliance with these conditions, the AAC has completed these
surveys since 2006. Aerial survey data indicate that Steller sea lions,
harbor seals, gray whales (Eschrichtius robustus), humpback whales
(Megaptera novaeangliae), and sea otters (Enhydra lutris) occur within
the action area. Although potentially present, cetaceans within the
action area are not expected to be taken during the specified
activities. Airborne noise is generally reflected at the sea surface
outside of a 26[deg] cone extending downward from the ascending rocket
(Richardson et al., 1995); therefore, little sound energy passes into
the sea across the air-water boundary. Submerged animals would have to
be directly underneath the rocket to hear it, and given the hypersonic
velocity of launch vehicles in the atmosphere, the duration of sounds
reaching any cetacean would be discountable. In addition, all spent
rocket motors will fall into the open ocean over deep water. Given the
very short time a cetacean is at the surface, direct impact from spent
motors can be discounted as can any noise related impacts. Based on
these reasons, NMFS does not anticipate take of cetaceans incidental to
the specified activity; hence, they will not be discussed further. Sea
otters are managed by the U.S. Fish and Wildlife Service; therefore no
take of sea otters is included in the proposed regulations. As such,
this species is not discussed further in this final rule.
Steller Sea Lions
Steller sea lions are designated into two stocks by NMFS. Those
west of 144[deg] longitude, which includes the KLC area, are listed as
endangered under the ESA. Historically, mature and sub-adult males have
used a spit on the northwestern side of Ugak Island as a post-breeding
haulout. This spit is located 3.5 miles from the launch pad complex
(see figure 4 and 5 in the application). The historic occupancy period
ranges from June to September (post breeding), with peak reported
numbers in the hundreds (Sease 1997; ENRI 1995-1998). However, use has
declined in recent times in keeping with general declines seen in the
species as a whole. The spit is designated a long-term trend count site
by NMFS and has been surveyed once yearly, with June as the target,
since the 1990s. Counts since 2000 have generally been zero (e.g.,
NMFS, 2009; Fritz and Stinchcomb, 2005), which is in line with the
counts from all other long-term trend count sites in the Kodiak
Archipelago over the same time period. All of these other long-term
trend sites are far removed from the 6-mile radius anticipated impact
area up range from KLC (i.e., areas opposite to the flight path), in
areas not exposed to launch noise. Hence, Steller sea lion abundance
has declined throughout the region, not just the area affected by
launches, and the losses are likely not a result of or connected with
the launches or use of KLC.
Data from AAC's aerial surveys over the past four years also
support low use of the haulout. Since 1999, five launches have occurred
during the Steller sea lion season. The spit haulout has not been used
by Steller sea lions during launch-monitoring surveys since 1999 (ENRI,
2000, R&M, 2007a,b, 2008); however, during recent launch surveys one to
several Stellar sea lions have been observed from time-to-time
utilizing a supratidal rock on eastern Ugak Island (termed East Ugak
Rock) as a haulout. Tables 2 and 4 in the application provide a
breakdown of survey results per day. In summary, two to eight sea lions
were observed per day on East Ugak Rock during surveys for the FTG-02
launch (R&M, 2006b), and one to five (per day) were observed during the
FTX-03 launch (R&M, 2008). In addition, during one aerial survey that
was completed outside the June to September timeframe (during the FTG-
05 campaign in December 2008), a single Stellar sea lion was observed
on East Ugak Rock. East Ugak Rock is
[[Page 16313]]
located farther east and to the south of the KLC than Ugak Island;
therefore, one can assume launch generated sound levels here are less
than those at Ugak Island.
Harbor Seals
Harbor seals are the most abundant marine mammal species found
within the action area. Harbor seals are not listed as threatened or
endangered under the ESA or as depleted under the MMPA. Based on the
AAC's aerial survey counts from launch monitoring reports conducted
since January 2006, approximately 97% of all observed harbor seals are
found on the eastern shore of Ugak Island, approximately 5 miles from
the launch pad complex. The eastern shore is backed by high steep
cliffs that reach up to 1,000 feet above sea level. These cliffs form a
visual and acoustic barrier to rocket operations, and alleviate effects
on the species. This conclusion is based on review of sound pressure
recordings made at the haulout spit found on the island's northwestern
shore, which showed surf and wind-generated sound pressures at sea
level were generally in the >70 dBA (SEL) range on the clearest days
(Cuccarese et al., 1999, 2000). During inclement weather periods
ambient sound pressures at sea level can exceed 100 dBA (SEL). The
island's eastern shore is windward to prevailing winds and surf noise
is routinely high. Harbor seals located on Ugak Island's northern shore
are not as protected from launch noise, and therefore may be harassed
incidental to the AAC's specified activity. However, harbor seal
abundance on the northern shores is limited due to the lack of suitable
habitat (i.e., few beaches). During 30 aerial surveys conducted by the
AAC during six rocket launches from 2006 to 2008, no seals were
observed on North Ugak Island on 19 occasions. During surveys when
seals were present, average abundance was 25 with a single day count of
125 individuals.
Because physical access to Ugak Island harbor seal haulouts is
difficult and dangerous, the only abundance and behavior data of these
seals have been derived from aerial surveys conducted by the AAC.
Harbor seals generally breed and molt where they haul out, so it is
assumed that both of these activities take place on Ugak Island, and
young seals have routinely been seen there during launch-related aerial
surveys. Pupping in Alaska takes place generally in the May to June
time frame; molting occurs generally from June to October. Both periods
contain peaks in haulout attendance. Total counts on Ugak Island have
increased steadily since the 1990s from several hundred (ENRI 1995-
1998) up to a peak of about 1,500 today (R&M 2007a, 2007b, 2008, 2009).
Potential Effects on Marine Mammals
As discussed above, launch operations are a major source of noise
on Kodiak Island and can reach Steller sea lion and harbor seal
haulouts and rookeries on Ugak Island. Marine mammals produce sounds in
various contexts and use sound for various biological functions
including, but not limited to: (1) Social interactions; (2) foraging;
(3) orientation; and (4) predator detection. Interference with
producing or receiving these sounds may result in adverse impacts.
Audible distance, or received levels (RLs), will depend on the nature
of the sound source, ambient noise conditions, and the sensitivity of
the receptor to the sound (Richardson et al., 1995). Type and
significance of marine mammal reactions to noise are likely to be
dependent on a variety of factors including, but not limited to, the
behavioral state (e.g., resting, socializing, etc.) of the animal at
the time it receives the stimulus, frequency of the sound, distance
from the source, and the level of the sound relative to ambient
conditions (Southall et al., 2007). In general, marine mammal impacts
from loud noise can be characterized as auditory and non-auditory.
Potential Auditory Impacts
Auditory impacts consist of injurious (e.g., ruptured ear drums,
permanent threshold shift [PTS]) or non-injurious (e.g., temporary
threshold shift [TTS]) effects. There are no empirical data for onset
of PTS in any marine mammal; therefore, PTS-onset must be estimated
from TTS-onset measurements and from the rate of TTS growth with
increasing exposure levels above the level eliciting TTS-onset. PTS is
presumed to be likely if the hearing threshold is reduced by >= 40 dB
(i.e., 40 dB of TTS).
Given the distance from the pad area to Ugak Island and the
measured sound levels from the Castor 120 (101.4 dB), for the loudest
space vehicle used at the KLC, pinniped auditory injury is not
anticipated. Further explanation was provided in the proposed rule
Federal Register notice (75 FR 80777, December 23, 2010). Regarding
TTS, although hearing sensitivity was not apparently affected during
the ABR testing, that is not to say that TTS did not occur, as seals
were tested approximately 2 hours after launch, not immediately
following the launch. However, if TTS did occur, hearing was fully
recovered within 2 hours. In conclusion, NMFS has preliminarily
determined PTS would not occur in pinnipeds on Ugak Island and TTS,
although unlikely, may occur. However, if pinnipeds on Ugak Island
experience TTS, full-hearing recovery is expected shortly after
exposure.
Potential Behavioral Impacts
To comply with their current regulations, the AAC attempted to
collect video footage of pinnipeds during launches; however, weather,
technical, and accessibility issues prevented video coverage from being
obtained. Therefore, no immediate responses of pinnipeds to the AAC's
launch noise have been documented. However, as discussed above, VAFB
researchers have been investigating the short- and long-term effects of
space vehicle launch noise and sonic booms on pinnipeds. As described
in NMFS' 2009 EA, the percentage of seals that left the haulout
increased as noise level increased up to approximately 100 decibels
(dB) A-weighted SEL, after which almost all seals left, although recent
data have shown that an increasing percentage of seals may remain on
shore. Using time-lapse video photography, VAFB discovered that during
four launch events, the seals that reacted but remained on the haulout
were all adults. VAFB theorized that adult seals may have habituated to
launch stimuli more so than less-experienced younger seals; hence the
less-severe reactions. Further information on this research can be
found within the proposed rule (75 FR 80777, December 23, 2010).
The behavioral data record for Steller sea lions is small
throughout the North Pacific range and typically is focused on
reproductive behaviors. In general, studies have shown that responses
of pinnipeds on beaches to acoustic disturbance arising from rocket and
target missile launches are highly variable. This variability may be
due to many factors, including species, age class, and time of year.
The infrequent (approximately nine times per year) and brief (no
more than 1 minute as heard from Ugak Island) nature of these sounds
that would result from a rocket launch is not expected to alter the
population dynamics of Steller sea lions or harbor seals which utilize
Ugak Island as a haulout site. If launches occur during the harbor seal
pupping period and harbor seals have also chosen to pup on the north
beach, it is possible that harbor seal pups could be injured or killed
as a result of the adults flushing in response to the rocket noise, or
the mother/pup bond could be permanently broken. However, NMFS does not
expect harbor seal pup injury
[[Page 16314]]
and mortality to occur to a great degree, due to previous research
studies that are summarized in the proposed rule (75 FR 80778, December
23, 2010).
Finally, the KLC conducts approximately three security overflights
per day in the days preceding a launch. Several studies of both harbor
seals and Steller sea lions cited in Richardson et al. (2005) suggest
that these animals respond significantly less to overflights of both
planes and helicopters that occur above 305 m (0.2 mi). NMFS does not
anticipate harassment from overflights to occur as they generally
remain at least 0.25 miles from a haulout; however, if the pilot or
crew notice overt responses from pinnipeds (e.g., flushing) to
aircraft, this response will be noted and reported to NMFS in the
flight report. Observations made of any animals displaced by a security
overflight are reported to the environmental monitoring team for
inclusion in their report of monitoring results.
Anticipated Effects on Habitat
Solid-fuel rocket boosters will fall into the ocean away from any
known or potential haulouts. All sonic booms that reach the earth's
surface are expected to occur over open ocean, beyond the OCS. Airborne
launch sounds will mostly reflect or refract from the water surface
and, except for sounds within a cone of approximately 26 degrees
directly below the launch vehicle, will not penetrate into the water
column. The sounds that do penetrate will not persist in the water for
more than a few seconds. Overall, rocket launch activities from the KLC
are not expected to cause any impacts to habitats used by marine
mammals, including pinniped haulouts, or to their food sources.
Comments and Responses
On December 23, 2010 (75 FR 80773), NMFS published a notice of
proposed rulemaking on the AAC's request to take marine mammals
incidental to rocket launches at KLC and requested comments,
information, and suggestions concerning the request. During the 30-day
public comment period, NMFS received comments from eight private
citizens, the Kodiak Chamber of Commerce, the Kodiak Island Borough
Mayor, the City of Kodiak Mayor, and the Commission. Six of the private
citizens--four of them residents of Kodiak, Alaska--and all of the
city/borough officials wrote in support of the proposed rule. One
private citizen expressed general opposition to anything related to the
military. The remaining comments and NMFS' responses are detailed
below.
Comment 1: The AAC should be required to obtain video footage of
the harbor seal reactions to launches from the KLC. Furthermore, NMFS
does not provide specific indications of what will be reviewed or
potentially modified should the distribution, size, or productivity of
either pinniped population be affected from the launches.
Response: As explained in the proposed rule, the AAC will be
purchasing and placing one remote live-streaming video system to
overlook a harbor seal haulout on the eastern side of Ugak Island. The
purpose is to monitor for any behavioral reactions of harbor seals to
the launches. The language about reviewing monitoring data and
potentially modifying mitigation and monitoring requirements is put in
place as an adaptive management measure. Data from aerial surveys and
camera footage will be reviewed for unusual behavior, injury, or death.
Any modifications to the mitigation or monitoring requirements will be
determined on a case-by-case basis.
Comment 2: The Commission recommends that NMFS include in its final
rule all of the applicant's proposed mitigation and monitoring
measures, including those described in the preamble of the proposed
rule.
Response: NMFS has included all of the required mitigation and
monitoring measures in the final rule, including those described in the
preamble.
Comment 3: The Commission recommends that NMFS require the AAC to
use a remote video-camera system to monitor harbor seals on the eastern
side of Ugak Island during at least five launches. If the cameras
detect any disturbance, then the Commission recommends that the
applicant and NMFS consult to determine what monitoring adjustments are
needed and, if the authorized harbor seal takes are exceeded due to
disturbance on the eastern side of the island, the applicant should
consult with NMFS to determine if amendments to the regulations or
letters of authorization are needed.
Response: The use of a remote video-camera system to monitor harbor
seals on the eastern side of Ugak Island during at least five launches
is a required monitoring measure for the AAC under this rulemaking. If
any disturbance to the animals' behavior is detected, the regulations
require that the AAC consult with NMFS to determine if any mitigation
or monitoring modifications are necessary. Furthermore, if the
authorized harbor seal takes are exceeded, the regulations require that
the AAC consult with NMFS to determine if amendments to the regulations
or letters of authorization are needed.
Comment 4: The Commission recommends that NMFS require appropriate
monitoring of Steller sea lions before, during, and after launches to
determine if the launches are disturbing the sea lions' use of Ugak
Island and possibly discouraging more sea lions from hauling out there.
Response: After the first five launches, cameras may be
repositioned to monitor Steller sea lions on Ugak Island. Monitoring of
Stellers under the previous rule (2006 to 2011) showed one of the
following: (1) No sea lions present during a launch; (2) all sea lions
present became alert but did not move immediately following a launch;
or (3) some sea lions present were flushed into the water temporarily.
Attempts will be made by the AAC to capture further sea lion behavioral
responses at the time of launch.
Comment 5: The Commission recommends that NMFS advise the applicant
of the need to consult with the Fish and Wildlife Service regarding the
potential incidental take of sea otters.
Response: The AAC is aware of the Fish and Wildlife Service's
jurisdiction over the incidental take of sea otters.
Mitigation
In order to issue an Incidental Take Authorization (ITA) under
section 101(a)(5)(A) of the MMPA, NMFS must set forth the permissible
methods of taking pursuant to such activity, and other means of
effecting the least practicable adverse impact on such species or stock
and its habitat, paying particular attention to rookeries, mating
grounds, and areas of similar significance, and on the availability of
such species or stock for taking for certain subsistence uses.
To minimize impacts on pinnipeds at haulout sites, NMFS is
requiring the following mitigation measures: (1) Security overflights
associated with the launch will not approach occupied pinniped haulouts
on Ugak Island by closer than 0.25 mile (0.4 km), and will maintain a
vertical distance of 1,000 ft (305 m) from the haulouts when within 0.5
miles (0.8 km), unless indications of human presence or activity
warrant closer inspection of the area to assure that national security
interests are protected in accordance with law; (2) the AAC will avoid
launches during the harbor seal pupping season (May 15 to June 30),
unless constrained by factors including, but not limited to, human
safety and national security; and (3) if launch monitoring detects
pinniped injury or death, or if long-term trend
[[Page 16315]]
counts from quarterly aerial surveys indicate that the distribution,
size, or productivity of the potentially affected pinniped populations
has been affected due to the specified activity, the launch procedures
and the monitoring methods will be reviewed, in cooperation with NMFS,
and, if necessary, appropriate changes may be made through
modifications to a given LOA, prior to conducting the next launch of
the same vehicle under that LOA.
NMFS carefully evaluated the applicant's proposed mitigation
measures and considered a range of other measures in the context of
ensuring that NMFS prescribes the means of effecting the least
practicable adverse impact on the affected marine mammal species and
stocks and their habitat. Our evaluation of potential measures included
consideration of the following factors in relation to one another: (1)
The manner and the degree to which the successful implementation of the
measure is expected to minimize adverse impacts to marine mammals; (2)
the proven or likely efficacy of the specific measure to minimize
adverse impacts as planned; and (3) the practicability of the measure
for applicant implementation, including consideration of personnel
safety, and practicality of implementation. The required mitigation
measures take scientific studies (Richardson et al., 2005) of
overflight effects on pinnipeds into consideration. By avoiding
launches during the harbor seal pupping season, the AAC will avoid all
Level A harassment and mortality, which is only anticipated to occur as
a result of pups being trampled or separated from their mothers.
Lastly, the adaptive nature of the proposed mitigation measures allow
for adjustments to be made if launch monitoring or quarterly aerial
surveys indicate that impacts to the distribution, size, or
productivity of pinniped populations are occurring.
Based on our evaluation of the applicant's proposed measures, as
well as other measures considered by NMFS or recommended by the public
during the 30-day comment period, NMFS has determined that the
aforementioned mitigation measures provide the means of effecting the
least practicable adverse impacts on marine mammals species or stocks
and their habitat, paying particular attention to rookeries, mating
grounds, and areas of similar significance.
Monitoring and Reporting
In order to issue an ITA for an activity, section 101(a)(5)(A) 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 ITAs
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.
The AAC plans to purchase and place one remote live-streaming video
system overlooking one of the harbor seal haulouts on the eastern side
of Ugak Island for the first five launches conducted under these
regulations to verify the assumption that seals on the eastern side of
the island are not affected by launches. Although animals on the
northern shore are more likely to be affected by the action, this area
is predominantly a rocky reef tidal area where seals haul out
opportunistically, either singly or in small numbers on exposed rocks.
There is more confidence seals will be visible and able to be monitored
on the eastern side of the island. After five launches, AAC and NMFS
will reassess the efficiency of the camera system and possibly move it
to another location (e.g., the traditional Steller sea lion haulout).
The selected haulout will be viewed either in real time or via
``tape'' delay for six days using the following schedule where day
length permits. The six-day schedule will be roughly centered on the
day of launch, with launch day being day three of the monitoring
schedule. The video stream will be viewed by professional biologists
for 4 hours each day with monitoring centered on the time of launch on
launch day, and on low tide on the other days. Detailed information on
when monitoring will occur around a launch is provided in the AAC's
application. Data collected from the live stream video will include
number of animals observed, by age and sex class when possible,
behavior (e.g., resting), animal response to launches, and re-
occupation time if disturbed.
The video system was developed, tested, and first put into service
in Alaska, and has proven itself over many years of operation both in
Alaska and around the world. The video system is all weather proven and
autonomous, drawing energy from a combination of wind and solar
generators. It features a camera that includes a lens that can be
focused (zoom and pan) on command and provides live-streaming video
that can be made available through Internet access to interested
researchers in real time.
The AAC will also carry out quarterly aerial surveys to determine
long-term trend counts of Steller sea lions and harbor seals within the
action area. Surveys will be flown midday and centered around low tide
for optimal seal counts. The aircraft will survey from a distance
appropriate to count seals or sea lions, but far enough away to
minimize harassment. Data collected will include number of seals or sea
lions per haulout, by age class when possible, and if any disturbance
behavior is noted from aircraft presence.
In addition to visual monitoring, whenever a new class of rocket is
flown from the KLC, a real time sound pressure record will be obtained
for documentation purposes and correlated with the behavioral response
record. Two sound pressure monitors will be used: one will be placed at
the established sound pressure recording location known as Narrow Cape
and the other as close as practical to the remote video system.
Estimated Take by Incidental Harassment
Except with respect to certain activities not pertinent here, the
MMPA (16 U.S.C. 1362(18)(A) defines ``harassment'' as:
any act of pursuit, torment, or annoyance which (i) has the
potential to injure a marine mammal or marine mammal stock in the
wild [Level A harassment]; or (ii) has the potential to disturb a
marine mammal or marine mammal stock in the wild by causing
disruption of behavioral patterns, including, but not limited to,
migration, breathing, nursing, breeding, feeding, or sheltering
[Level B harassment].
As described above, Steller sea lions hauled out on Ugak Island may
become alert or flush into the water in response to launch noise. Sound
exposure levels from the loudest launch may reach approximately 101.4
dBA at the traditional Steller sea lion haulout. Based on this recorded
level and the fact that audible launch noise will be very short in
duration, sea lions are not expected to incur PTS, and the chance of
TTS is unlikely. No injury or mortality of Stellar sea lions is
anticipated, nor is any authorized. Therefore, NMFS authorizes Steller
sea lion take, by Level B harassment only, incidental to launches from
KLC.
Harbor seals of all age classes hauled out on the northern side of
Ugak Island will likely react in a similar manner as Steller sea lions
(and may become alert or flush into the water) to launches from KLC.
Therefore, harbor seals may be taken by Level B harassment incidental
to rocket launch noise. However, during the pupping season (May 15 to
June 30),
[[Page 16316]]
pups may also be injured, killed, or separated from their mother during
a flushing event. Therefore, NMFS authorizes Level A harassment and
mortality of harbor seal pups, should launches during the harbor seal
pupping season be unavoidable.
As discussed above, security overflights associated with a launch
will not closely approach or circle any sea lion or seal haulout site.
Therefore, incidental take from this activity is not anticipated.
Should the pilot or crew on the plane observe pinnipeds reacting to
their presence, the plane will increase altitude and note the number of
animals reacting to the plane. This data will be included in the AAC's
final marine mammal report.
The AAC estimates that up to 45 launches may occur from the KLC
over the course of the 5-year period covered by the proposed
rulemaking. Annually, the AAC estimates an average of nine launches
will occur. Most of these vehicles are expected to be of the Minotaur I
through V class, including civil versions of the Castor 120 known as
the Athena and Taurus I or smaller target vehicles. The AAC estimates
that no more than one launch will occur over a 4-week period, and it is
likely the frequency of launches will be less than this estimate.
Based on aerial survey data, the AAC estimates a maximum of ten
Steller sea lions could be present during launches occurring during the
Steller sea lion season (the maximum number of animals sighted during a
survey of this season has been eight). Any sea lions present during the
launches will be adult or juvenile males; therefore, no reproductive
processes or pupping will be affected by the specified activities.
Assuming that all nine launches (the average number of launches
predicted by the AAC) occur during the Steller sea lion season, that
all nine launches involve the Castor 120 (the loudest vehicle expected
to be flown from KLC over the period to be covered by the proposed
regulations), and that there is no habituation to rocket motor effects
with experience, then up to 90 takes by harassment could occur per year
(ten animals/launch x nine launches). However, it is more reasonable to
assume that a maximum of four launches per year could occur during the
2-month Steller sea lion season, and that no more than eight Stellers
would be present at any given time (the maximum number recorded).
Therefore, NMFS authorizes the take, by Level B harassment, of 32
Steller sea lions per year (eight animals x four launches).
The total number of harbor seals present on Ugak Island ranges up
to about 1,500, most of which are found on the island's eastern shore
where they are sheltered from launch effects by the 1,000-foot tall
cliffs that stand between their haulouts and the KLC. Relatively few
harbor seals use haulouts on the northern side of the island across
from the KLC due to the lack of suitable beaches. No seals were
observed on northern haulouts, which consist primarily of isolated
rocks, during 19 of 30 marine mammal surveys flown by the AAC from 2006
to 2008. When present, the majority of counts on northern haulouts
showed fewer than 25 individuals; however, a one-time high count of
about 125 animals on these rocks has been made. Using the conservative
and rare high number of 125 as being a representative figure, the AAC
estimates that up to 125 individuals might be taken per launch
operation. Therefore, NMFS authorizes 1,125 harbor seal (125 seals/
launch x nine launches/year) takes during launch operations.
The actual number of pups taken by Level A harassment or mortality
is difficult to quantify, as age class was not identified during the
AAC's previous monitoring efforts (age class distinction will occur
under the current monitoring and reporting requirements). Given that
seals do not use the northern haulouts in large numbers (as compared to
the protected eastern haulouts), the number of pups on the area of the
island exposed to launch noise is likely low. Actual numbers will
likely be smaller given the low and variable use of the area by harbor
seals.
To better determine the potential number of pups on Ugak Island
during launches, NMFS consulted with Ms. Kate Wynne, a marine mammal
specialist with the Alaska Sea Grant Marine Advisory Program, who has
previously flown aerial surveys within the action area. Her data, from
the early 1990s, indicates that pup counts on the northern side of Ugak
Island averaged approximately 17. Although this data is not recent, it
is the best available. NMFS does not anticipate that all pups on a
haulout would be injured or killed during a launch and, in fact, many
may not be taken by Level A harassment or mortality. However, in the
unlikely event injury or mortality occurs, NMFS authorizes 17 harbor
seal pup takes by Level A harassment or mortality, annually, incidental
to AAC's activities.
Previous Activities and Monitoring
As previously discussed, under AAC's current regulations (valid
February 27, 2006 through February 28, 2011) and annual LOAs, AAC has
been conducting marine mammal monitoring within the action area before
and after launch events to satisfy the monitoring requirements set
forth in MMPA authorizations. The objective of monitoring Steller sea
lions and Pacific harbor seals is to detect any indications of pinniped
disturbance, injury, or mortality resulting from KLC rocket launches at
the Ugak Island haulout site. Monitoring requirements included: (1)
Conducting fixed-wing aerial surveys at least one day prior to,
immediately after, and three days following any launches taking place
from June 15 through September 30, weather permitting; (2) installing a
remote custom-designed, closed-circuit, weatherproof, time-lapse video
camera system at the base of the traditional Steller sea lion haulout
before any launch occurring from June 15 through September 30; and (3)
making an attempt to place a video camera with zoom lens on the
accessible western end of the north-facing shore to record harbor seal
behavior on the middle or eastern end of the shore, or on the rocks
offshore (recall that the eastern side of Ugak Island--where the
majority of seals are--is completely inaccessible to pedestrian or boat
traffic due to the high cliffs and violent surf).
The regulations also contained noise monitoring requirements; these
data are discussed in the Description of the Specified Activity section
above. The AAC complied with the noise monitoring conditions contained
within the regulations and annual LOAs. Further information on the
AAC's previous activities and monitoring results can be found within
the proposed rule (75 FR 80780, December 23, 2010).
NMFS has shifted its focus from direct Steller sea lion to harbor
seal monitoring under these regulations. The AAC will monitor harbor
seal reactions to rocket launches during the launch itself via a type
of camera system currently used by the Alaska Sea Life Center to
monitor haulouts and rookeries. The camera will be placed at a harbor
seal pupping location on Ugak Island to better assess the likelihood
that harbor seal pups may be abandoned, injured, or killed as a direct
result of a rocket launch disturbance. The camera system will be
installed and operating if the AAC conducts a launch during the harbor
seal pupping season. Unlike the previous system, this camera system
does not need to be retrieved to acquire data and battery power is not
problematic. Therefore, the AAC can place it at a harbor seal haulout
during good weather no matter the number of days before a launch and
does not have to be concerned with retrieving it. These factors will
likely eliminate the previous
[[Page 16317]]
issues with video monitoring designed to detect pinniped reactions at
the time of the launch. In addition, the camera system will have a zoom
lens for better viewing quality.
Negligible Impact and Small Numbers Analysis and Determination
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.'' In making a negligible impact determination,
NMFS considers (and should explicitly address whenever possible) the
following: (1) Number of anticipated mortalities; (2) number and nature
of anticipated injuries; (3) number, nature, intensity, and duration of
Level B harassment; (4) is the nature of the anticipated takes such
that we would expect it to actually impact rates of recruitment or
survival; (5) context in which the takes occur; and (6) species or
stock status.
In the past few years, the AAC has conducted no more than two
launches on an annual basis. Regardless, NMFS has analyzed the
specified activity to include disturbance events of up to nine launches
per year as they anticipate the capability to carry out more efficient
mission turn-around time over the duration of the final regulations.
Mortalities and injuries are only authorized for harbor seal pups, and
these are not expected due to small and variable harbor seal
populations using the northern haulout sites, as well as the nature of
pups and the early bonds formed between pups and mothers. Level B
harassment of Steller sea lions is possible due to rocket launch noise,
but is considered unlikely based on projected sound levels and the
short duration of the noise; therefore, rates of sea lion recruitment
or survival are not expected to be impacted. Rates of harbor seal
recruitment or survival are also not expected to be impacted due to the
limited number of mortalities or injuries to harbor seal pups (less
than one percent of population). Due to the fact that no sonic booms
are audible from Ugak Island, NMFS does not anticipate the potential
for PTS to occur and TTS is unlikely, but possible. These assumptions
are justified from ABR data collected at and around VAFB from similar
launch activities. Further, based on aerial survey data, the harbor
seal population on this island is increasing. Given that harbor seals
are considered a species that is easily disturbed, their resilience to
launch effects suggest any impacts from launches are short-term and
negligible. The amount of take the AAC has requested, and NMFS
authorizes, is considered small (less than one percent of Stellers and
less than three percent of harbor seals) relative to the estimated
stock populations of 41,197 Steller sea lions in the Western U.S. and
44,453 harbor seals in the Gulf of Alaska.
Mitigation measures to reduce noise from launches once in the air
are virtually impossible; however, the noise generated on the launch
pad during ignition moves through a deep trench (called a flame trench
or flame bucket) that diverts the noise/exhaust toward the northwest
(away from Ugak Island). The primary method of minimizing impacts to
pinnipeds from launch noise is to minimize the number of launches when
possible during sensitive times.
In addition, improved monitoring will better enable the AAC and
NMFS to determine if impacts from rocket launches are having short-term
and long-term impacts on the present day pinniped populations on Ugak
Island. The camera system will be able to detect immediate impacts from
launch exposure, including the number of pinnipeds flushing at the
haulout site, while quarterly aerial surveys will aid in determining
long-term trends of pinniped abundance. NMFS conservatively anticipates
a small number of pups may be injured or killed during a launch.
However, there is no empirical data to prove or disprove this as no
video monitoring of seals during the launch has been successful (the
one time a video system was placed near the haulout, no seals were
observed). As discussed previously, the population of harbor seals on
Ugak Island has increased steadily from several hundred in the 1990s
(ENRI 1995-1998) to a peak of about 1,500 today (R&M 2007a, 2007b,
2008, 2009). Therefore, NMFS does not believe there will be any long-
term impact on the health of the population if pup mortality occurs
from launches. The required monitoring measures contained within this
notice are specifically designed to, among other things, determine if
pup injury or mortality is occurring (i.e., from flushing, separation
of mothers and pups, etc.) due to rocket launches from the AAC.
Based on the analysis contained herein of the likely effects of the
specified activity on marine mammals and their habitat, and taking into
consideration the implementation of the mitigation and monitoring
measures, NMFS finds that space vehicle and missile launches at the KLC
will result in the incidental take of small numbers of marine mammals,
but that the total taking will have a negligible impact on the affected
species or stocks.
Impact on Availability of Affected Species for Taking for Subsistence
Uses
There are no relevant subsistence uses of marine mammals implicated
by this action. Therefore, NMFS has determined that the total taking of
affected species or stocks will not have an unmitigable adverse impact
on the availability of such species or stocks for taking for
subsistence uses.
Endangered Species Act (ESA)
The Steller sea lion is the only marine mammal species under NMFS'
jurisdiction that is listed as endangered under the ESA with confirmed
or possible occurrence in the action area. In the 2003 Biological
Opinion, NMFS determined that the proposed actions would not result in
jeopardy to the affected species or result in adverse modification of
critical habitat. In 2005, the AAC, on behalf of the FAA, consulted
with NMFS, under Section 7 of the ESA, on the impacts of space vehicle
and rocket launches on Steller sea lions. NMFS consulted internally
under the ESA on its proposed issuance of the AAC's 2006 MMPA
regulations and subsequent LOAs. NMFS also consulted internally on the
issuance of the final regulations (effective from March 2011, through
February 2016) for this activity under section 101(a)(5)(A) of the
MMPA. In a Biological Opinion (BiOp), NMFS Alaska Region concluded that
the AAC's activities at the KLC and NMFS' issuance of these regulations
are not likely to jeopardize the continued existence of Steller sea
lions or destroy or adversely modify any designated critical habitat.
NMFS Alaska Region will also issue BiOps and associated incidental
take statements (ITSs) to NMFS' Permits, Conservation, and Recreation
Division to exempt the take (under the ESA) that NMFS authorizes in the
LOAs under the MMPA. Because of the difference between the statutes, it
is possible that ESA analysis of the applicant's action could produce a
take estimate that is different than the takes requested by the
applicant (and analyzed for authorization by NMFS under the MMPA
process), despite the fact that the same proposed action (i.e., number
and type of launches) was being analyzed under each statute. When this
occurs, NMFS staff coordinates to ensure that the most conservative
(lowest) number of takes is authorized. For the AAC's activities at the
KLC, coordination with the NMFS Alaska Region indicates that they will
likely allow for the same
[[Page 16318]]
amount of take of Steller sea lions that was requested by the
applicant.
The ITS(s) issued for each LOA will contain implementing terms and
conditions to minimize the effect of the marine mammal take authorized
through the 2011 LOA (and subsequent LOAs in 2012, 2013, 2014, and
2015). With respect to listed marine mammals, the terms and conditions
of the ITSs will be incorporated into the LOAs.
National Environmental Policy Act (NEPA)
In 1996, the FAA prepared an EA, and subsequently issued a Finding
of No Significant Impact (FONSI), for the AAC's proposal to construct
and operate a launch site at Narrow Cape on Kodiak Island, Alaska.
Since 1998, the AAC has provided monitoring reports related to noise
and marine mammal impacts associated with ongoing rocket launches from
KLC. After reviewing the new information contained in the monitoring
reports, and considering the Commission's comments that impacts to
harbor seals should be more comprehensively addressed, NMFS decided
that a more current environmental analysis was necessary. In 2005, NMFS
prepared an EA and associated FONSI on the Promulgation of Regulations
Authorizing Take of Marine Mammals Incidental to Rocket Launches at
Kodiak Launch Complex, Alaska, and the Issuance of Subsequent Letters
of Authorization. NMFS found that the promulgation of a 5-year
rulemaking in 2006 and issuance of subsequent LOAs would not
significantly impact the quality of the human environment, and
therefore issued a FONSI. Accordingly, preparation of an Environmental
Impact Statement or Supplemental Environmental Impact Statement for
this action was not necessary. NMFS has determined that because neither
the action nor the environmental baseline in the area has changed
significantly from that analyzed in previous NEPA documents, further
analysis under NEPA is not necessary for issuance of regulations and
subsequent LOAs extending into 2016.
Classification
The Office of Management and Budget (OMB) has determined that this
proposed rule is not significant for purposes of Executive Order 12866.
Good cause exists to waive the 30-day delay in effectiveness for
this rule pursuant to 5 U.S.C. 553(d), because delaying the rule's
effectiveness is contrary to the public interest and is unnecessary.
While there are no launches specifically scheduled for March 2011, the
U.S. Air Force has told the AAC to be prepared for a potential launch
as early as March. Because these launches may be necessary for national
security, it is in the public's interest to have these regulations take
effect immediately, before the AAC's current regulations expire on
February 28, 2011. The AAC has requested a waiver of the 30-day delay
in effectiveness for this rule in order to ensure that the rule goes
into effect March 1, 2011, the day after the current regulations
expire. A launch delay would lead to increased risk for personnel if
there is increased handling time for hazardous materials or ordnance
that has to be deactivated or offloaded, depending on the stage of
launch preparations at the time of delay. Delaying this initial launch
could also delay other scheduled launches for the following months.
Additionally, the measures contained in this final rule are
substantially similar to the measures contained in the five-year rule
that expires on February 28, 2011. Accordingly, delaying the
effectiveness of these rules is not necessary to provide time to allow
the affected entities to come into compliance with the rules. Moreover,
this rule does not impose any requirements or obligations on the
public. For these reasons, there is good cause to waive the 30-day
delay in effectiveness of this rule.
Pursuant to section 605(b) of the Regulatory Flexibility Act (RFA),
the Chief Counsel for Regulation of the Department of Commerce has
certified to the Chief Counsel for Advocacy of the Small Business
Administration that this final rule will not have a significant
economic impact on a substantial number of small entities. A
description of this final rule and its purpose are found in the
preamble to this rule, and are not repeated here. NMFS received no
comments or questions regarding this certification. For a copy of the
certification, see ADDRESSES.
Notwithstanding any other provision of law, no person is required
to respond to nor shall a person be subject to a penalty for failure to
comply with a collection of information subject to the requirements of
the Paperwork Reduction Act (PRA) unless that collection of information
displays a currently valid OMB control number. This rule contains a
collection-of-information requirement subject to the provisions of the
PRA. This collection has been approved previously by OMB under section
3504(b) of the PRA issued under OMB control number 0648-0151, which
includes applications for LOAs and reports.
List of Subjects in 50 CFR Part 217
Exports, Fish, Imports, Indians, Labeling, Marine mammals,
Penalties, Reporting and recordkeeping requirements, Seafood,
Transportation.
Dated: February 16, 2011.
Eric C. Schwaab,
Assistant Administrator for Fisheries, National Marine Fisheries
Service.
For reasons set forth in the preamble, 50 CFR part 217 is amended
as follows:
PART 217--REGULATIONS GOVERNING THE TAKING AND IMPORTING OF MARINE
MAMMALS
0
1. The authority citation for part 217 continues to read as follows:
Authority: 16 U.S.C. 1361 et seq.
0
2. Subpart H is added to read as follows:
Subpart H--Taking of Marine Mammals Incidental to Space Vehicle and
Missile Launches at Kodiak Launch Complex, Alaska
Sec.
217.70 Specified activity and specified geographical region.
217.71 Effective dates.
217.72 Permissible methods of taking.
217.73 Prohibitions.
217.74 Mitigation.
217.75 Requirements for monitoring and reporting.
217.76 Letter of Authorization.
217.77 Renewal of a Letter of Authorization and adaptive management.
217.78 Modifications to a Letter of Authorization.
Subpart H--Taking of Marine Mammals Incidental to Space Vehicle and
Missile Launches at Kodiak Launch Complex, Alaska
Sec. 217.70 Specified activity and specified geographical region.
(a) Regulations in this subpart apply only to the incidental taking
of marine mammals specified in paragraph (b) of this section by U.S.
citizens engaged in space vehicle and missile launch activities at the
Kodiak Launch Complex on Kodiak Island, Alaska.
(b) The incidental take of marine mammals under the activity
identified in paragraph (a) of this section is limited to 32 juvenile
and adult Steller sea lions (Eumetopius jubatus), 1,125 Pacific harbor
seals (Phoca vitulina) of all ages, and 17 harbor seal pups.
Sec. 217.71 Effective dates.
Regulations in this subpart are effective from March 22, 2011
through March 22, 2016.
Sec. 217.72 Permissible methods of taking.
(a) Under a Letter of Authorization issued pursuant to Sec.
216.106 of this
[[Page 16319]]
chapter, the Alaska Aerospace Corporation and its contractors may
incidentally, but not intentionally, take Steller sea lions and Pacific
harbor seals by Level B harassment and harbor seal pups by Level A
harassment or mortality in the course of conducting space vehicle and
missile launch activities within the area described in Sec. 217.70(a),
provided all terms, conditions, and requirements of these regulations
and such Letter of Authorization are complied with.
(b) The activities identified in Sec. 217.70(a) must be conducted
in a manner that minimizes, to the greatest extent practicable, adverse
impacts on marine mammals and their habitat.
Sec. 217.73 Prohibitions.
The following activities are prohibited:
(a) The taking of a marine mammal that is other than unintentional.
(b) The violation of, or failure to comply with, the terms,
conditions, and requirements of this subpart or a Letter of
Authorization issued under Sec. 216.106 of this chapter.
(c) The incidental taking of any marine mammal of a species not
specified, or in a manner not authorized, in this subpart.
Sec. 217.74 Mitigation.
(a) The activity identified in Sec. 217.70(a) must be conducted in
a manner that minimizes, to the greatest extent practicable, adverse
impacts on marine mammals and their habitats. When conducting
operations identified in Sec. 217.70(a), the mitigation measures
contained in the Letter of Authorization issued under Sec. Sec.
216.106 of this chapter and 217.76 must be implemented. These
mitigation measures include (but are not limited to):
(1) Security overflights by helicopter associated with a launch
will not approach occupied pinniped haulouts on Ugak Island by closer
than 0.25 mile (0.4 km), and will maintain a vertical distance of 1000
ft (305 m) from the haulouts when within 0.5 miles (0.8 km), unless
indications of human presence or activity warrant closer inspection of
the area to assure that national security interests are protected in
accordance with law;
(2) For missile and rocket launches, holders of Letters of
Authorization must avoid launches during the harbor seal pupping season
of May 15 through June 30, except when launches are necessary for the
following purposes: human safety, national security, space vehicle
launch trajectory necessary to meet mission objectives, or other
purposes related to missile or rocket launches.
(3) All flights by fixed-wing aircraft associated with the marine
mammal abundance quarterly surveys must maintain a minimum altitude of
500 ft (152 m) and remain 0.25 miles from recognized seal haulouts.
(4) If launch monitoring or quarterly aerial surveys indicate that
the distribution, size, or productivity of the potentially affected
pinniped populations has been affected due to the specified activity,
the launch procedures and the monitoring methods will be reviewed, in
cooperation with NMFS, and, if necessary, appropriate changes may be
made through modifications to a given LOA, prior to conducting the next
launch of the same vehicle under that LOA.
(5) Additional mitigation measures as contained in a Letter of
Authorization.
(b) [Reserved]
Sec. 217.75 Requirements for monitoring and reporting.
(a) Holders of Letters of Authorization issued pursuant to
Sec. Sec. 216.106 of this chapter and 217.76 for activities described
in Sec. 217.70(a) are required to cooperate with NMFS, and any other
Federal, State, or local agency with authority to monitor the impacts
of the activity on marine mammals. Unless specified otherwise in the
Letter of Authorization, the Holder of the Letter of Authorization must
notify the Administrator, Alaska Region, NMFS, by letter, e-mail or
telephone, prior to each launch. If the authorized activity identified
in Sec. 217.70(a) is thought to have resulted in the take of marine
mammals not identified in Sec. 217.70(b), then the Holder of the
Letter of Authorization must notify the Director, Office of Protected
Resources, NMFS, or designee, by telephone (301-713-2289), within 48
hours of the discovery of the take.
(b) Holders of Letters of Authorization must designate qualified
protected species observers, approved in advance by NMFS, as specified
in the Letter of Authorization, to:
(1) Deploy for AAC a remote camera system designed to detect
pinniped responses to rocket launches for at least the first five
launches conducted under these regulations. AAC will conduct visual
monitoring for at least 2 hours before, during, and 2 hours after
launch;
(2) Ensure a remote camera system will be in place and operating in
a location which allows visual monitoring of a harbor seal rookery, if
a launch during the harbor seal pupping season cannot be avoided;
(3) Relocate the camera system to or re-aim the camera system on
another haulout to be chosen in cooperation with NMFS after the first
five launches with harbor seals present;
(4) Review and log pinniped presence, behavior, and re-occupation
time data from the visual footage obtained from the remote camera
system and report results to NMFS within 90 days post launch;
(5) Obtain, whenever a new class of rocket is flown from the Kodiak
Launch Complex, a real-time sound pressure and sound exposure record
for documentation purposes and to correlate with the behavioral
response record. Two monitors shall be used: one shall be placed at the
established recording location known as Narrow Cape, and the other as
close as practical to the remote video system;
(6) Conduct quarterly aerial surveys, ideally during midday
coinciding with low tide, to obtain data on pinniped presence,
abundance, and behavior within the action area to determine long-term
trends in pinniped haulout use. Results