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Taking and Importing Marine Mammals; Taking Marine Mammals Incidental to Coastal Commercial Fireworks Displays at Monterey Bay National Marine Sanctuary, CA
Note: EPA no longer updates this information, but it may be useful as a reference or resource.
[Federal Register: July 19, 2006 (Volume 71, Number 138)]
[Rules and Regulations]
[Page 40928-40934]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr19jy06-17]
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DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric Administration
50 CFR Part 216
[Docket No. 060406098-6169-02; I.D. 020706D]
RIN 0648-AT46
Taking and Importing Marine Mammals; Taking Marine Mammals
Incidental to Coastal Commercial Fireworks Displays at Monterey Bay
National Marine Sanctuary, CA
AGENCY: National Marine Fisheries Service (NMFS), National Oceanic and
Atmospheric Administration (NOAA), Commerce.
ACTION: Final rule.
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SUMMARY: NMFS, upon application from the Monterey Bay National Marine
Sanctuary (MBNMS or the Sanctuary), is issuing regulations to govern
the unintentional takings of small numbers of marine mammals incidental
to authorizing professional fireworks displays within the Sanctuary in
California waters. 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 MBNMS to permit fireworks displays. These regulations govern
the issuance of ``Letters of Authorization'' (LOAs) for the
unintentional 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, through this final rule, issues mitigation,
reporting and monitoring requirements.
In the proposed rule, NMFS referenced and proposed the continued
implementation of a document entitled ``MBNMS Fireworks Guidelines''
(Guidelines), which was cooperatively developed by the Sanctuary, NMFS,
and the U.S. Fish and Wildlife Service and served as a basis for the
mitigation measures described in the proposed rule. These Guidelines
also included three specific mitigation measures that NMFS has now
included in the final rule.
DATES: Effective from July 4, 2006 through July 3, 2011.
ADDRESSES: A copy of MBNMS' application which contains a list of the
references used in this document may be obtained by writing to Steve
Leathery, Division of Permits, Conservation, and Education, Office of
Protected Resources, National Marine Fisheries Service, 1315 East-West
Highway, Silver Spring, MD 20910-3226 or by telephoning the contact
listed here (see FOR FURTHER INFORMATION CONTACT). The NMFS
Administrative Record will be maintained at the above address.
FOR FURTHER INFORMATION CONTACT: Jolie Harrison, Office of Protected
Resources, NMFS, (301) 713-2289, ext 166, or Monica DeAngelis, NMFS,
Southwest Regional Office, (562) 980-3232.
SUPPLEMENTARY INFORMATION:
Background
Sections 101(a)(5)(A) and (D) of the MMPA (16 U.S.C. 1361 et seq.)
direct the Secretary to allow, upon request, the incidental, but not
intentional taking of small numbers of marine mammals by U.S. citizens
who engage in a specified activity (other than commercial fishing)
within a specified geographical region. The Secretary will allow an
incidental take if certain findings are made and either regulations are
issued or, if the taking is limited to harassment, notice of a proposed
authorization is provided to the public for review.
Authorization for incidental takings may be granted if NMFS finds
that the taking will have no more than a negligible impact on the
species or stock(s) and will not have an unmitigable adverse impact on
the availability of the species or stock(s) for subsistence uses. The
permissible methods of taking and requirements pertaining to the
mitigation, monitoring and reporting of such taking shall be prescribed.
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 for certain categories of activities not pertinent here, the
MMPA defines ``harassment'' as:
any act of pursuit, torment, or annoyance which (i) has the
potential to injure a marine mammal or marine mammal stock in the
wild [``Level A harassment'']; or (ii) has the potential to disturb
a marine mammal or marine mammal stock in the wild by causing
disruption of behavioral patterns, including, but not limited to,
migration, breathing, nursing, breeding, feeding, or sheltering
[``Level B harassment''].
Summary of Request
On May 10, 2002, NMFS received an application from the MBNMS
requesting a 1-year Incidental Harassment Authorization (IHA) under
section 101(a)(5)(D) and, subsequently, the issuance of regulations
governing authorizations for a 5-year period under section 101(a)(5)(A)
of the MMPA for the potential harassment of California sea lions
(Zalophus californianus) and Pacific harbor seals (Phoca vitulina)
incidental to coastal fireworks displays conducted at MBNMS under
Authorizations issued by MBNMS to local governments, civic
organizations, and commercial companies. On July 4, 2005, NMFS issued
an IHA to MBNMS (70 FR 39235, July 7, 2005) and that IHA expires on
July 3, 2006.
[[Page 40929]]
Specified Activities
Since 1993, the MBNMS, a component of NOAA, has processed requests
for the professional display of fireworks that affect the Sanctuary.
The MBNMS has determined that debris fallout (spent pyrotechnic
materials) from fireworks events may constitute a discharge into the
Sanctuary and thus violate Sanctuary regulations, unless an
Authorization is issued by the Sanctuary. Therefore, sponsors of
fireworks displays conducted in the MBNMS are required to obtain
Sanctuary Authorization prior to conducting such displays (see 15 CFR
922.132).
The MBNMS has issued 67 Authorizations for professional fireworks
displays since 1993 (five in 2005) and 5 applications are currently
being processed (as of March 2006). Four fireworks display applications
have been directed to areas outside the Sanctuary. However, the MBNMS
staff projects that as many as 20 coastal displays per year may be
conducted in, or adjacent to, MBNMS boundaries in the future. The
number of displays will be limited to no more than 20 events per year
in four specific areas along 276 mi (444 km) of coastline. Fireworks
displays will not exceed 30 minutes (with the exception of up to two
displays per year, not to exceed 1 hour) in duration and will occur
with an average frequency of less than or equal to once every two
months within each of the four prescribed display areas.
Initially, the MBNMS believed that it could minimize potential
light, sound, and debris impacts to the Sanctuary and marine mammals
through Authorization conditions to limit the location, timing, and
composition of professional fireworks events affecting the MBNMS.
However, due to observations over the past several years and through
consultation with NMFS' Southwest Region, it appears that some
fireworks displays resulted in incidental take of marine mammals by
Level B harassment. NMFS believes that the nature of the take will be
the short-term flushing and evacuation of non-breeding haulout sites by
California sea lions and Pacific harbor seals.
A detailed description of the types of effects used in the MBNMS
fireworks displays and the areas within the Sanctuary where fireworks
will be authorized under this final rule was included in the proposed
rule (71 FR 25544, May 1, 2006) and may be found in the application or
in MBNMS' 2001 Assessment of Pyrotechnic Displays and Impacts Within
the MBNMS, which are available at:
http://www.nmfs.noaa.gov/pr/permits/incidental.htm. 
Marine Mammals Potentially Affected by the Activity
Twenty-six species of marine mammals may be found in the Monterey
Bay area (see Table 1 in the MBNMS application), however, the only
species likely to be harassed by the fireworks displays are the
California sea lion and the Pacific harbor seal. Detailed information
regarding the status of these species was provided in the proposed rule
(71 FR 25544, May 1, 2006) and additional information can be found in
Folkens' Guide to the Marine Mammals of the World (2002) and in the
NMFS stock assessments on the NMFS website: http://www.nmfs.noaa.gov
/pr/PR2/Stock_Assessment_Program/individual_sars.html.
Potential Effects on Marine Mammals
The primary causes of disturbance of marine mammals from fireworks
are sound effects and light flashes. A discussion of the potential
effects to marine mammals from loud noises, including physical
impairment, temporary or permanent hearing threshold shift, and
behavioral disturbance was included in the proposed rule (71 FR 25544,
May 1, 2006). Also included in the proposed rule was an analysis of
non-acoustic effects from fireworks, including chemical residue,
debris, and increased boat traffic. The potential effects discussed in
the proposed rule are the same as those that would occur under the
final rule.
MBNMS staff have been opportunistically monitoring sea lions at the
City of Monterey's Fouth of July celebration for more than 10 years.
Their general observations may be summarized as follows: sea lions
begin leaving the breakwater as soon as the fireworks begin, clear
completely off after an aerial salute or quick succession of loud
effects, usually begin returning within a few hours of the end of the
display, and are present on the breakwater at pre-firework numbers by
the following morning.
NMFS anticipates that fireworks will result in short-term
behavioral disturbance of pinnipeds in the form of temporary
displacement from haulouts in the vicinity of the fireworks. NMFS does
not expect these activities to result in the injury of any marine mammals.
Comments and Responses
On May 1, 2006 (71 FR 25544), NMFS published a notice of proposed
rulemaking on MBNMS's request to take marine mammals incidental to
authorizing fireworks in the Sanctuary and requested comments,
information and suggestions concerning the request. During the 30-day
public comment period, NMFS received one comment from the public.
Comment: The commenter both objected to the harrassment of marine
mammals in the MBNMS and opposed any fireworks displays within or near
the Sanctuary. The commenter suggested that a sanctuary should be
exactly that - a sanctuary, where animals can be safe and protected
from human harrasment, including the noise and chemicals involved with
fireworks.
Response: The National Marine Sanctuaries Act requires NOAA to
facilitate all public and private uses of marine sanctuary resources to
the extent compatible with the primary objective of resource
protection. National marine sanctuaries are designated for conservation
purposes as well as cultural benefits. The Monterey Bay National Marine
Sanctuary (MBNMS) spans one quarter of California's coastline and
borders several active coastal communities, thus NOAA must regularly
manage potential impacts of human activities within the Sanctuary.
Marine fireworks displays have been a frequent component of California
coastal community celebrations for decades prior to Sanctuary
designation. NOAA has assessed the wildlife disturbance factors and
chemical impacts of fireworks displays within the MBNMS for several
years, and believes that such activities, if properly managed, can be
conducted in a manner that will have no more than negligible short-term
adverse effects upon the resources of the Sanctuary. NOAA continues to
monitor this activity and will adjust current management strategies to
safeguard marine resources and qualities should new information reveal
that fireworks are harming the marine environment or living resources
of the Sanctuary.
Mitigation
NMFS has collaborated with the MBNMS and USFWS since 2001 to
develop conservation measures that minimize fireworks impacts on
protected species and the marine environment within the MBNMS by
defining the locations, frequency, and conditions under which the MBNMS
can authorize marine fireworks displays.
The mitigation measures can be grouped into five broad approaches
for managing fireworks displays and will be implemented by the MBNMS:
(1) Limit displays to certain seasons to safeguard reproductive
periods: This
[[Page 40930]]
regulation does not authorize fireworks events between March 1 and June
30 of any year, since this period is the primary reproductive season
for many marine species.
(2) Establish four conditional display areas: Traditional fireworks
display areas within the MBNMS are located adjacent to urban centers
where wildlife has often acclimated to human disturbances, such as low-
flying aircraft, emergency vehicles, unleashed pets, beach combing,
recreational and commercial fishing, surfing, swimming, boating, and
personal watercraft operations. This regulation only authorizes
fireworks displays in four prescribed areas of the Sanctuary. The
conditional display areas (described in detail in the proposed rule, 71
FR 25544, May 1, 2006) are located at Half Moon Bay, the Santa Cruz/
Soquel area, the northeastern Monterey Peninsula, and Cambria (Santa
Rosa Creek).
(3) Create a per-annum limit on the number of displays allowed in
each display area: If properly managed, a limited number of fireworks
displays conducted in areas already heavily impacted by human activity
can occur with sufficient safeguards to prevent any long-term or
chronic impacts upon local natural resources. This regulation
authorizes no more than 20 displays along the entire Sanctuary
coastline in order to prevent cumulative negative environmental effects
from fireworks proliferation. Additionally, displays will be authorized
at an average frequency equal to or less than 1 every 2 months in each
conditional display area.
(4) Retain Authorization requirements and general and special
restrictions for each event: Fireworks displays will not exceed 30
minutes with the exception of two longer displays per year that will
not exceed 1 hour. The Sanctuary will continue to assess displays on a
case-by-case basis, using specially developed terms and conditions to
address concerns unique to fireworks displays (e.g., restricting the
number of aerial ``salute'' effects used as well as requiring a ``ramp-
up'', wherein ``salutes'' are not allowed in the first 5 minutes of the
display; requiring the removal of plastic and aluminum labels and
wrappings; and requiring post-show reporting and cleanup). Such terms
and conditions have evolved over 12 years, as the Sanctuary has sought
to improve its understanding of the potential impacts that fireworks
displays have upon marine wildlife and the environment. The MBNMS will
implement general and special restrictions unique to each fireworks
event as necessary.
(5) Institute a 5-year Authorization system for annual displays:
The Sanctuary intends to institute a 5-year Authorization system for
fireworks displays that occur annually at fixed locations in a
consistent manner, such as municipal Independence Day shows.
Authorizations will include special conditions that mitigate negative
impacts upon species and habitat from fireworks displays, such as the
requirement for authorization holders to clean up debris following each
event. Authorizations for fireworks displays will not be valid unless
current LOAs have been issued by NMFS for unintentional harassment
incidental to the displays.
The above conservation measures are designed to prevent an
incremental proliferation of fireworks displays and disturbance
throughout the Sanctuary and minimize area of impact by authorizing
displays in primary traditional use areas. They also place multiple
special conditions on the displays and allow fireworks displays only
during seasons that avoid sensitive wildlife breeding cycles. These
measures and MBNMS Authorization conditions assure that protected
species and habitats are not jeopardized by fireworks activities. They
have been well received by local fireworks sponsors who have pledged
their cooperation in protecting Sanctuary resources.
Monitoring
The Sanctuary shall conduct a visual census of the Monterey
Breakwater and Harbor Rocks on July 4-5, 2007, to update annual
abundance, demographic response patterns, and departure and return
rates for California sea lions and harbor seals relative to the July 4
fireworks display. Data will be collected by an observer aboard a kayak
or small boat and from ground stations (where appropriate). The
observer will use binoculars, counters, and data sheets to count
animals. The pre and post fireworks census data will be analyzed to
identify any significant temporal changes in abundance and distribution
that might be attributed to impacts from the annual fireworks display.
The data will also be added to past research statistics on the
abundance and distribution of stocks at Monterey Harbor.
It should be noted, however, that annual population trends at any
given pinniped haul-out site can be influenced by a myriad of
environmental and biological factors, ranging from predation upon pups
at distant breeding colonies to fluctuating prey stocks due to El Nino
events. These many variables make it difficult to measure and
differentiate the potential impact of a single stimulus on long-term
population trends.
The Sanctuary also proposes to conduct one-time acoustic monitoring
at the 2007 City of Monterey Fourth of July fireworks display in
conjunction with the behavioral monitoring described above. The
Sanctuary has contracted SRS Technologies (SRS) to conduct the acoustic
monitoring. SRS will use two independent systems to monitor the sound
environment and to measure fireworks noise. A TEAC model RD-120T
digital audio tape recorder (DAT) recorder, a high quality Bruel and
Kjaer type 4193 microphone with a type UC0211 low frequency adapter,
and type 2669 pre-amplifier will be used and are specifically tailored
for recording the low frequency sound associated with impulsive noise
sources like explosives. This system records the noise digitally to
tape, which allows for detailed post-launch analysis of the frequency
content, and the calculation of many other acoustic metrics. The DAT
system will record for just over three hours (longer than the
fireworks) and the waveforms will be analyzed using custom routines
programmed in MatLab. SRS will also use the Larson-Davis model 820 Type
1 sound level meter (SLM) for the acoustic monitoring. The SLM does not
make an actual recording of sound, but measures specific sound events
that exceed a pre-set minimum sound level, background noise, and
ambient noise and then computes acoustical metrics such as the A-
weighted SEL, unweighted SEL, and A-weighted peak. Microphones for both
pieces of equipment will be mounted approximately 1.2 m (3.9 ft) above
ground on tripods and will be covered by extra large windballs to
reduce wind noise. Noise systems will be calibrated in the field prior
to recording.
In addition to the comprehensive behavioral and acoustic monitoring
to be conducted only at the Monterey Breakwater in 2006, MBNMS will
require its applicants to conduct a pre-event census of local marine
mammal populations within the fireworks impact area of all the
fireworks displays authorized. Each applicant will also be required to
conduct post-event monitoring in the fireworks impact area to record
injured or dead marine mammals, brown pelicans, and other wildlife.
Reporting
MBNMS must submit a draft annual monitoring report to NMFS within
60 days after the conclusion of each calendar year. MBNMS must submit a
[[Page 40931]]
final annual monitoring report to the NMFS within 30 days after
receiving comments from NMFS on the draft report. If no comments are
received from NMFS, the draft report will be considered to be the final
report. In addition, the MBNMS will continue to incorporate updated
census data from government and academic surveys into its analysis and
will make its information available to other marine mammal researchers
upon request. Lastly, MBNMS must submit a draft comprehensive
monitoring report to NMFS 120 days prior to the expiration of the
regulations if renewal is requested, or 120 days after the expiration
of the regulations, if renewal is not requested. MBNMS must submit the
final comprehensive monitoring report to NMFS within 30 days after
receiving comments from NMFS on the draft comprehensive monitoring
report. Again, if no comments are received from NMFS, the draft report
will be considered to be the final report.
Numbers of Marine Mammals Expected to be Harassed
As discussed above, the two marine mammal species NMFS believes
likely to be taken by Level B harassment incidental to fireworks
displays authorized within the Sanctuary are the California sea lion
(Zalophus californianus) and the Pacific harbor seal (Phoca vitulina
richardsi), due to the temporary evacuation of usual and accustomed
haul-out sites. Both of these species are protected under the MMPA, and
neither is listed under the ESA. Numbers of animals that may be taken
by Level B harassment are expected to vary due to factors such as tidal
state, seasonality, shifting prey stocks, climatic phenomenon (such as
El Nino events), and the number, timing, and location of future
displays. The estimated take of sea lions and harbor seals was
determined by using a synthesis of information, including data gathered
by MBNMS biologists at the specific display sites, results of
independent surveys conducted in the MBNMS, and population estimates
from surveys covering larger geographic areas. More detailed
information regarding the estimates of take of sea lions and harbor
seals may be found in the application at:
http://www.nmfs.noaa.gov/pr/permits/incidental.htm.
Stage structure of California sea lions within the Sanctuary varies
by location, but generally, the majority are adult and sub-adult males.
Weise (2000) reported on the stage structure of California sea lions at
two historic fireworks display areas within the MBNMS, and speculated
that juveniles may haul out at the Monterey jetty in large numbers due
to a need for a more protected haul-out location. He also reported that
most animals on Ano Nuevo Island appeared to be adult males and
suggested that the stage structure may vary between mainland haul-out
sites and offshore islands and rocks. At all four designated display
sites combined, twenty fireworks events per year could disturb an
average total of 2,630 California sea lions, with the maximum being
6,170 animals out of a total estimated population of 237,000-244,000.
These numbers are small relative to the population size (1.1-2.6 percent).
For harbor seals, an average of 302 and a maximum of 1,065 harbor
out of a total estimated population of 27,836 could be disturbed within
the Sanctuary as a result of twenty fireworks events per year at all
four designated display sites combined. These numbers are small
relative to the population size (1.1-3.8 percent). Nicholson (2000)
studied the stage structure of harbor seals on the northeast Monterey
Peninsula (an area with the largest single concentration of animals
within the Sanctuary) for two years. For the final spring season of the
study, survey numbers equate to a stage structure comprising 38 percent
adult females, 15 percent adult males, 34 percent sub-adults, and 13
percent yearlings or juveniles.
With the incorporation of mitigation measures required by this
final rule and subsequent LOAs, NMFS and the MBNMS believe that the
proposed authorized coastal fireworks displays may result in Level B
Harassment of pinnipeds hauled out in the area of the fireworks, with
no associated injury resulting. NMFS believes that these activities
will have a negligible impact on marine mammal species or stocks and
their habitats.
Possible Effects of Activities on Marine Mammal Habitat
Impacts on marine mammal habitat are part of the consideration in
making a finding of negligible impact on the species and stocks of
marine mammals. Habitat includes, but is not necessarily limited to,
rookeries, mating grounds, feeding areas, and areas of similar
significance. The amount of debris and chemical residue resulting from
fireworks displays authorized within the MBNMS is determined by the
size and contents of the different fireworks, as well as the wind
conditions, weather, and other local variations. Special conditions
requiring Authorization holders to clean up the affected area after
each fireworks display will be required by the LOAs and Sanctuary
Authorizations. No evidence of water quality deterioration has been
found in relation to prior MBNMS fireworks displays and the
Environmental Assessment for this action discusses the 1992 Walt Disney
report, which found that environmental impacts from fireworks
decomposition products typically will be negligible in locations that
conduct fireworks displays infrequently. Because of the aforementioned
mitigation measure and report, NMFS does not expect the debris and
residue resulting from authorized fireworks displays to significantly
impact marine mammal habitat in the MBNMS.
Possible Effects of Activities on Subsistence Needs
There are no subsistence uses for Pacific harbor seals in
California waters, and thus, there are no anticipated effects on
subsistence needs.
ESA
As mentioned earlier, the Steller sea lion and several species of
federally listed cetaceans may be present at MBNMS at different times
of the year and could potentially swim through the fireworks impact
area during a display. In a 2001 consultation with MBNMS, the Southwest
Region, NMFS, concluded that this action is not likely to adversely
affect federally listed species under NMFS' jurisdiction. There is no
designated critical habitat in the area. This action will not have
effects beyond those analyzed in that consultation.
The USFWS is responsible for regulating the take of the southern
sea otter, the brown pelican, and the western snowy plover. The MBNMS
consulted with the USFWS pursuant to section 7 of the ESA regarding
impacts to these species. The USFWS issued a Biological Opinion on June
22, 2005, which concluded that the authorization of fireworks displays,
as proposed, is not likely to jeopardize the continued existence of
endangered and threatened species within the Sanctuary or to destroy or
adversely modify any listed critical habitat. The USFWS further found
that MBNMS would be unlikely to take any southern sea otters, and
therefore issued neither an incidental take statement under the ESA nor
an IHA. The USFWS found that an incidental take of brown pelicans was
possible and issued an incidental take statement containing terms and
conditions to protect the species. The USFWS concluded that the
authorization of fireworks events, as proposed, is not likely to
jeopardize the
[[Page 40932]]
continued existence of the western snowy plover or destroy or adversely
modify critical habitat of the species.
National Environmental Policy Act
NOAA prepared a Final Environmental Impact Statement and Master
Plan for the MBNMS in June 1992; however, this document did not address
the authorization of fireworks within the Sanctuary. In 2006, MBNMS and
NMFS jointly prepared a Environmental Assessment (EA) on the Issuance
of Regulations Authorizing Incidental Take of Marine Mammals and
Issuance of National Marine Sanctuary Authorizations for Coastal
Commercial Fireworks Displays within the Monterey Bay National Marine
Sanctuary. An associated Finding of No Significant Impact was issued on
June 20, 2006.
Determination
NMFS has determined that the fireworks displays, as described in
this document and in the application for regulations and subsequent
LOAs, will result in no more than Level B harassment of small numbers
of California sea lions and harbor seals. The effects of coastal
fireworks displays will be limited to short term and localized changes
in behavior, including temporarily vacating haulouts to avoid the sight
and sound of commercial fireworks. NMFS has also determined that any
takes will have a negligible impact on the affected species and stocks.
No take by injury and/or death is anticipated, and harassment takes
will be at the lowest level practicable due to incorporation of the
mitigation measures mentioned previously in this document.
Additionally, the MBNMS fireworks displays will not have an unmitigable
adverse impact on the availability of marine mammal stocks for
subsistence use, as there are no subsistence uses for California sea
lions or Pacific harbor seals in California waters.
Classification
The MMPA provides for a moratorium on the take of marine mammals,
unless the take is permitted pursuant to certain enumerated exceptions.
The Secretary of Commerce may, upon request, allow for the incidental,
but not intentional, taking by harassment of small numbers of marine
mammals of a species or population stock, if he determines that the
harassment will have a negligible impact on such species or population
stock and will not have an unmitigable adverse impact on the
availability of such species or stock for subsistence uses pursuant to
the MMPA. The National Marine Fisheries Service currently authorizes
the Monterey Bay National Marine Sanctuary to take, by level B
harassment, certain pinnipeds during the course of fireworks displays
held within the Sanctuary. The Sanctuary has been operating under 1-
year authorizations for the past year. This final rule would streamline
the annual authorization process for a 5-year period. The Sanctuary's
current 1-year authorization is set to expire on July 3, 2006. If the
final rule is not in effect by that time, the Sanctuary and fireworks
display applicants would be prohibited from engaging in fireworks
activities for the upcoming July 4 season because they would no longer
have an authorization to lawfully take marine mammals and would be
liable for marine mammal takes that occur incidental to those
activities. Therefore, as this final rule and NMFS's subsequent LOA
grant an exemption to the MMPA moratorium on take of marine mammals, the
AA for Fisheries finds the 30-day delay in effectiveness does not apply.
The Office of Management and Budget has determined that this final
rule is not significant for purposes of Executive Order 12866.
Pursuant to the Regulatory Flexibility Act, 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
rule, if adopted, would not have a significant economic impact on a
substantial number of small entities. The Regulatory Flexibility Act
requires Federal agencies to prepare an analysis of a rule's impact on
small entities whenever the agency is required to publish a notice of
proposed rulemaking. However, a Federal agency may certify, pursuant to
5 U.S.C. section 605(b), that the action will not have a significant
economic impact on a substantial number of small entities. The MBNMS is
the entity that will be affected by this rulemaking, not a small
governmental jurisdiction, small organization or small business, as
defined by the Regulatory Flexibility Act. Any requirements imposed by
a Letter of Authorization issued pursuant to these regulations, and any
monitoring or reporting requirements imposed by these regulations, will
be applicable only to the MBNMS. The MBNMS is part of the National
Oceanic and Atmospheric Administration, National Ocean Service, a
Federal agency responsible for managing the national marine sanctuary
program. Because this action, if adopted, would directly affect the
MBNMS and not a small entity, NMFS concludes the action would not
result in a significant economic impact on a substantial number of
small entities.
List of Subjects in 50 CFR Part 216
Exports, Fish, Imports, Indians, Labeling, Marine mammals,
Penalties, Reporting and recordkeeping requirements, Seafood,
Transportation.
Dated: June 22, 2006.
Jim Balsiger,
Acting Deputy Assistant Administrator for Regulatory Programs, National
Marine Fisheries Service.
? For reasons set forth in the preamble, 50 CFR part 216 is amended as
follows:
PART 216--REGULATIONS GOVERNING THE TAKING AND IMPORTING OF MARINE MAMMALS
? 1. The authority citation for part 216 continues to read as follows:
Authority: 16 U.S.C. 1361 et seq.
? 2. Subpart J is added to part 216 to read as follows:
Subpart J--Taking Marine Mammals Incidental to Coastal Commercial
Fireworks Displays at Monterey Bay National Marine Sanctuary, California
Sec.
216.110 Specified activity and specified geographical region.
216.111 Effective dates.
216.112 Permissible methods of taking.
216.113 Prohibitions.
216.114 Mitigation.
216.115 Requirements for monitoring and reporting.
216.116 Applications for Letters of Authorization.
216.117 Letters of Authorization.
216.118 Renewal of Letters of Authorization.
216.119 Modifications to Letters of Authorization.
Subpart J--Taking Marine Mammals Incidental to Coastal Commercial
Fireworks Displays at Monterey Bay National Marine Sanctuary, CA
Sec. 216.110 Specified activity and specified geographical region.
(a) Regulations in this subpart apply only to the incidental taking
of those marine mammal species specified in paragraph (b) of this
section by the MBNMS.
(b) The incidental take, by Level B harassment only, of marine
mammals under the activity identified in this section is limited to the
following species: California sea lions (Zalophus californianus) and
Pacific harbor seals (Phoca vitulina).
[[Page 40933]]
Sec. 216.111 Effective dates.
Regulations in this subpart are effective from July 4, 2006,
through July 3, 2011.
Sec. 216.112 Permissible methods of taking.
(a) Under Letters of Authorization issued pursuant to Sec. Sec.
216.106 and 216.117, the Holder of the Letter of Authorization (i.e.
the Superintendent of MBNMS) may incidentally, but not intentionally,
take marine mammals by Level B harassment only, within the area
described in Sec. 216.110(a), provided the activity is in compliance
with all terms, conditions, and requirements of these regulations and
the appropriate Letter of Authorization.
(b) The activities identified in Sec. 216.110(a) must be conducted
in a manner that minimizes, to the greatest extent practicable, any
adverse impacts on marine mammals and their habitat.
(c) The taking of marine mammals is authorized for the species
listed in Sec. 216.110(b) and is limited to the Level B Harassment of
no more than 6,170 California sea lions and 1,065 harbor seals annually.
Sec. 216.113 Prohibitions.
Notwithstanding takings contemplated in Sec. 216.110 and
authorized by a Letter of Authorization issued under Sec. Sec. 216.106
and 216.117, no person in connection with the activities described in
Sec. 216.110 may:
(a) Take any marine mammal not specified in Sec. 216.110(b);
(b) Take any marine mammal specified in Sec. 216.110(b) other than
by incidental, unintentional Level B harassment;
(c) Take a marine mammal specified in Sec. 216.110(b) if such
taking results in more than a negligible impact on the species or
stocks of such marine mammal; or
(d) Violate, or fail to comply with, the terms, conditions, and
requirements of these regulations or a Letter of Authorization issued
under Sec. Sec. 216.106 and 216.117.
Sec. 216.114 Mitigation.
(a) The activity identified in Sec. 216.110(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. 216.110(a), all the mitigation measures
contained in the Letter of Authorization issued under Sec. Sec.
216.106 and 216.117 must be implemented, including but not limited to:
(1) Limiting the location of the authorized fireworks displays to
the four specifically prescribed areas at Half Moon Bay, the Santa
Cruz/Soquel area, the northeastern Monterey Peninsula, and Cambria
(Santa Rosa Creek);
(2) Limiting the total frequency of authorized fireworks displays
to no more than 20 total displays per year and the average frequency to
no more than one fireworks display every two months in each of the four
conditional display areas;
(3) Limiting the duration of authorized individual fireworks
displays to no longer than 30 minutes each, with the exception of two
longer shows not to exceed 1 hour;
(4) Prohibiting fireworks displays at MBNMS between March 1 and
June 30 of any year; and
(5) Implementing the following special conditions for fireworks
when authorizing fireworks displays at the MBNMS:
(i) Delay of aerial ``salute'' effects until five minutes after the
commencement of any fireworks display.
(ii) Removal of all plastic labels and wrappings from pyrotechnic
devices prior to use.
(iii) Required recovery of all fireworks related debris from the
launch site and affected beaches on the evening of the display and
again on the morning after.
(b) The mitigation measures that the individuals conducting the
fireworks are responsible for shall be included as a requirement in any
Authorization the MBNMS issues to the individuals.
Sec. 216.115 Requirements for monitoring and reporting.
(a) The Holder of the Letter of Authorization issued pursuant to
Sec. Sec. 216.106 and 216.117 for activities described in Sec.
216.110(a) is required to cooperate with the National Marine Fisheries
Service (NMFS), and any other Federal, state or local agency monitoring
the impacts of the activity on marine mammals. The Holder of the Letter
of Authorization must notify the Director, Office of Protected
Resources, National Marine Fisheries Service, or designee, by telephone
(301-713-2289), within 48 hours if the authorized activity identified
in Sec. 216.110(a) is thought to have resulted in the mortality or
injury of any marine mammals, or in any take of marine mammals not
identified in Sec. 216.110(b).
(b) The Holder of the Letter of Authorization must conduct all
monitoring and/or research required under the Letter of Authorization
including, but not limited to:
(1) A one-time comprehensive pinniped census at the City of
Monterey Fourth of July Celebration in 2007;
(2) A one-time acoustic measurement of the Monterey Fourth of July
Celebration in 2007;
(3) Counts of pinnipeds in the impact area prior to all displays at
all locations; and
(4) Reporting to NMFS of all marine mammal injury or mortality
encountered during debris cleanup the morning after every fireworks
display authorized by the Sanctuary.
(c) Unless specified otherwise in the Letter of Authorization, the
Holder of the Letter of Authorization must submit a draft annual
monitoring report to the Director, Office of Protected Resources, NMFS,
no later than 60 days after the conclusion of each calendar year. This
report must contain;
(1) An estimate of the number of marine mammals disturbed by the
authorized activities,
(2) Results of the monitoring required in Sec. 216.115 (b) and (c)
and any additional information required by the Letter of Authorization.
A final annual monitoring report must be submitted to the NMFS within
30 days after receiving comments from NMFS on the draft report. If no
comments are received from NMFS, the draft report will be considered to
be the final annual monitoring report.
(d) A draft comprehensive monitoring report on all marine mammal
monitoring and research conducted during the period of these
regulations must be submitted to the Director, Office of Protected
Resources, NMFS at least 120 days prior to expiration of these
regulations or 120 days after the expiration of these regulations if
renewal of the regulations will not be requested. A final comprehensive
monitoring report must be submitted to the NMFS within 30 days after
receiving comments from NMFS on the draft report. If no comments are
received from NMFS, the draft report will be considered to be the final
comprehensive monitoring report.
Sec. 216.116 Applications for Letters of Authorization.
To incidentally take marine mammals pursuant to these regulations,
the U.S. citizen (as defined by Sec. 216.103) conducting the activity
identified in Sec. 216.110(a) must apply for and obtain either an
initial Letter of Authorization in accordance with Sec. Sec. 216.117
or a renewal under Sec. 216.118.
Sec. 216.117 Letters of Authorization.
(a) A Letter of Authorization, unless suspended or revoked, will be
valid for a period of time not to exceed the period of validity of this
subpart, subject to
[[Page 40934]]
annual renewal pursuant to the conditions in Sec. 216.118.
(b) Each Letter of Authorization will set forth:
(1) Permissible methods of incidental taking;
(2) Means of effecting the least practicable adverse impact on the
species, its habitat, and on the availability of the species for
subsistence uses (i.e., mitigation); and
(3) Requirements for mitigation, monitoring and reporting.
(c) Issuance and renewal of the Letter of Authorization will be
based on a determination that the total number of marine mammals taken
by the activity as a whole will have no more than a negligible impact
on the affected species or stock of marine mammal(s).
(d) The U.S. Citizen, i.e., the MBNMS, operating under an LOA must
clearly describe in any Sanctuary Authorizations issued to the
individuals conducting fireworks displays, any requirements of the LOA
for which the individuals conducting fireworks are responsible.
Sec. 216.118 Renewal of Letters of Authorization.
(a) A Letter of Authorization issued under Sec. 216.106 and Sec.
216.117 for the activity identified in Sec. 216.110(a) will be renewed
annually upon:
(1) Notification to NMFS that the activity described in the
application submitted under Sec. 216.116 will be undertaken and that
there will not be a substantial modification to the described work,
mitigation or monitoring undertaken during the upcoming 12 months;
(2) Timely receipt of the monitoring reports required under Sec.
216.115(b), and the Letter of Authorization issued under Sec. 216.117,
which has been reviewed and accepted by NMFS; and
(3) A determination by the NMFS that the mitigation, monitoring and
reporting measures required under Sec. 216.114 and the Letter of
Authorization issued under Sec. Sec. 216.106 and 216.117, were
undertaken and will be undertaken during the upcoming annual period of
validity of a renewed Letter of Authorization.
(b) If a request for a renewal of a Letter of Authorization issued
under Sec. Sec. 216.106 and 216.118 indicates that a substantial
modification to the described work, mitigation or monitoring undertaken
during the upcoming season will occur, the NMFS will provide the public
a period of 30 days for 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
(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.
Sec. 216.119 Modifications to Letters of Authorization.
(a) Except as provided in paragraph (b) of this section, no
substantive modification (including withdrawal or suspension) to the
Letter of Authorization by NMFS, issued pursuant to Sec. Sec. 216.106
and 216.117 and subject to the provisions of this subpart shall be made
until after notification and an opportunity for public comment has been
provided. For purposes of this paragraph, a renewal of a Letter of
Authorization under Sec. 216.118, without modification (except for the
period of validity), is not considered a substantive modification.
(b) If the Assistant Administrator determines that an emergency
exists that poses a significant risk to the well-being of the species
or stocks of marine mammals specified in Sec. 216.110(b), a Letter of
Authorization issued pursuant to Sec. Sec. 216.106 and 216.117 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. E6-11463 Filed 7-18-06; 8:45 am]
BILLING CODE 3510-22-S