81_FR_33318 81 FR 33217 - Takes of Marine Mammals Incidental to Specified Activities; Taking Marine Mammals Incidental to the San Francisco Ferry Terminal Expansion Project, South Basin Improvements Project

81 FR 33217 - Takes of Marine Mammals Incidental to Specified Activities; Taking Marine Mammals Incidental to the San Francisco Ferry Terminal Expansion Project, South Basin Improvements Project

DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric Administration

Federal Register Volume 81, Issue 101 (May 25, 2016)

Page Range33217-33242
FR Document2016-12299

NMFS has received a request from the San Francisco Bay Area Water Emergency Transportation Authority (WETA) for authorization to take marine mammals incidental to construction activities as part of a ferry terminal expansion and improvements project. Pursuant to the Marine Mammal Protection Act (MMPA), NMFS is requesting public comment on its proposal to issue an incidental harassment authorization (IHA) to WETA to incidentally take marine mammals, by Level B harassment only, during the specified activity.

Federal Register, Volume 81 Issue 101 (Wednesday, May 25, 2016)
[Federal Register Volume 81, Number 101 (Wednesday, May 25, 2016)]
[Notices]
[Pages 33217-33242]
From the Federal Register Online  [www.thefederalregister.org]
[FR Doc No: 2016-12299]


-----------------------------------------------------------------------

DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

RIN 0648-XE490


Takes of Marine Mammals Incidental to Specified Activities; 
Taking Marine Mammals Incidental to the San Francisco Ferry Terminal 
Expansion Project, South Basin Improvements Project

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

ACTION: Notice; proposed incidental harassment authorization; request 
for comments.

-----------------------------------------------------------------------

SUMMARY: NMFS has received a request from the San Francisco Bay Area 
Water Emergency Transportation Authority (WETA) for authorization to 
take marine mammals incidental to construction activities as part of a 
ferry terminal expansion and improvements project. Pursuant to the 
Marine Mammal Protection Act (MMPA), NMFS is requesting public comment 
on its proposal to issue an incidental harassment authorization (IHA) 
to WETA to incidentally take marine mammals, by Level B harassment 
only, during the specified activity.

DATES: Comments and information must be received no later than June 24, 
2016.

ADDRESSES: Comments on this proposal should be addressed to Jolie 
Harrison, Chief, Permits and Conservation Division, Office of Protected 
Resources, National Marine Fisheries Service. Physical comments should 
be sent to 1315 East-West Highway, Silver Spring, MD 20910, and 
electronic comments should be sent to [email protected].
    Instructions: NMFS is not responsible for comments sent by any 
other method, to any other address or individual, or

[[Page 33218]]

received after the end of the comment period. Comments received 
electronically, including all attachments, must not exceed a 25-
megabyte file size. Attachments to electronic comments will be accepted 
in Microsoft Word or Excel or Adobe PDF file formats only. All comments 
received are a part of the public record and will generally be posted 
to the Internet at www.nmfs.noaa.gov/pr/permits/incidental/construction.html without change. All personal identifying information 
(e.g., name, address) voluntarily submitted by the commenter may be 
publicly accessible. Do not submit confidential business information or 
otherwise sensitive or protected information.

FOR FURTHER INFORMATION CONTACT: Laura McCue, Office of Protected 
Resources, NMFS, (301) 427-8401.

SUPPLEMENTARY INFORMATION: 

Availability

    An electronic copy of WETA's application and supporting documents, 
as well as a list of the references cited in this document, may be 
obtained by visiting the Internet at: www.nmfs.noaa.gov/pr/permits/incidental/construction.html. In case of problems accessing these 
documents, please call the contact listed above.

National Environmental Policy Act

    NMFS is currently conducting an analysis, pursuant to National 
Environmental Policy Act (NEPA), to determine whether or not this 
proposed activity may have a significant effect on the human 
environment. This analysis will be completed prior to the issuance or 
denial of this proposed IHA.

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 by U.S. 
citizens who engage in a specified activity (other than commercial 
fishing) within a specified area, the incidental, but not intentional, 
taking of small numbers of marine mammals, providing that certain 
findings are made and the necessary prescriptions are established.
    The incidental taking of small numbers of marine mammals may be 
allowed only if NMFS (through authority delegated by the Secretary) 
finds that the total taking by the specified activity during the 
specified time period will (i) have a negligible impact on the species 
or stock(s) and (ii) not have an unmitigable adverse impact on the 
availability of the species or stock(s) for subsistence uses (where 
relevant). Further, the permissible methods of taking and requirements 
pertaining to the mitigation, monitoring and reporting of such taking 
must be set forth, either in specific regulations or in an 
authorization.
    The allowance of such incidental taking under section 101(a)(5)(A), 
by harassment, serious injury, death, or a combination thereof, 
requires that regulations be established. Subsequently, a Letter of 
Authorization may be issued pursuant to the prescriptions established 
in such regulations, providing that the level of taking will be 
consistent with the findings made for the total taking allowable under 
the specific regulations. Under section 101(a)(5)(D), NMFS may 
authorize such incidental taking by harassment only, for periods of not 
more than one year, pursuant to requirements and conditions contained 
within an IHA. The establishment of prescriptions through either 
specific regulations or an authorization requires notice and 
opportunity for public comment.
    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, section 3(18) of the MMPA defines ``harassment'' 
as: ``. . . any act of pursuit, torment, or annoyance which (i) has the 
potential to injure a marine mammal or marine mammal stock in the wild 
[Level A harassment]; or (ii) has the potential to disturb a marine 
mammal or marine mammal stock in the wild by causing disruption of 
behavioral patterns, including, but not limited to, migration, 
breathing, nursing, breeding, feeding, or sheltering [Level B 
harassment].''

Summary of Request

    On February 8, 2016, we received a request from WETA for 
authorization of the taking, by level B harassment only, of marine 
mammals, incidental to pile driving in association with the San 
Francisco Ferry Terminal Expansion Project, South Basin Improvements 
Project in San Francisco Bay, California. That request was modified to 
include additional species and additional monitoring and mitigation 
measures on March 28, 2016 and May 2, 2016, and a final version, which 
we deemed adequate and complete, was submitted on May 13, 2016, which 
included revised take numbers and additional mitigation measures. In-
water work associated with the project is expected to be completed 
within 23 months. This proposed IHA is for the first phase of 
construction activities (July 1, 2016-December 31, 2016).
    The use of both vibratory and impact pile driving is expected to 
produce underwater sound at levels that have the potential to result in 
behavioral harassment of marine mammals. Seven species of marine 
mammals have the potential to be affected by the specified activities: 
Harbor seal (Phoca vitulina), California sea lion (Zalophus 
californianus), Northern elephant seal (Mirounga angustirostris), 
Northern fur seal (Callorhinus ursinus), harbor porpoise (Phocoena 
phocoena), gray whale (Eschrichtius robustus), and bottlenose dolphin 
(Tursiops truncatus). These species may occur year round in the action 
area.
    Similar construction and pile driving activities in San Francisco 
Bay have been authorized by NMFS in the past. These projects include 
construction activities at the Exploratorium (75 FR 66065), pier 36 (77 
FR 20361), and the Oakland Bay Bridge (71 FR 26750; 72 FR 25748; 74 FR 
41684; 76 FR 7156; 78 FR 2371; 79 FR 2421; and 80 FR 43710).

Description of the Specified Activity

Overview

    The San Francisco Bay Area Water Emergency Transportation Authority 
(WETA) is expanding berthing capacity at the Downtown San Francisco 
Ferry Terminal (Ferry Terminal), located at the San Francisco Ferry 
Building (Ferry Building), to support existing and future planned water 
transit services operated on San Francisco Bay by WETA and WETA's 
emergency operations.
    The Downtown San Francisco Ferry Terminal Expansion Project would 
eventually include phased construction of three new water transit gates 
and overwater berthing facilities, in addition to supportive landside 
improvements, such as additional passenger waiting and queuing areas, 
circulation improvements, and other water transit-related amenities. 
The new gates and other improvements would be designed to accommodate 
future planned water transit services between Downtown San Francisco 
and Antioch, Berkeley, Martinez, Hercules, Redwood City, Richmond, and 
Treasure Island, as well as emergency operation needs. According to 
current planning and operating assumptions, WETA will not require all 
three new gates (Gates A, F, and G) to support existing and new 
services immediately. As a result, WETA is planning that project 
construction will be phased. The first phase will include construction 
of Gates

[[Page 33219]]

F and G, as well as other related improvements in the South Basin.

Dates and Duration

    The total project is expected to require a maximum of 130 days of 
in-water pile driving. The project may require up to 23 months for 
completion; with a maximum of 106 days for pile driving in the first 
year. In-water activities are limited to occur between July 1 and 
November 30, 2016 and June 1 through November 30, 2017. If in-water 
work will extend beyond the effective dates of the IHA, a second IHA 
application will be submitted by WETA. This proposed authorization 
would be effective from July 1, 2016 to December 31, 2016.

Specific Geographic Region

    The San Francisco ferry terminal is located in the western shore of 
San Francisco Bay (see Figure 1 of WETA's application). The ferry 
terminal is five blocks north of the San Francisco Oakland Bay Bridge. 
More specifically, the south basin of the ferry terminal is located 
between Pier 14 and the ferry plaza. San Francisco Bay and the adjacent 
Sacramento-San Joaquin Delta make up one of the largest estuarine 
systems on the continent. The Bay has undergone extensive 
industrialization, but remains an important environment for healthy 
marine mammal populations year round. The area surrounding the proposed 
activity is an intertidal landscape with heavy industrial use and boat 
traffic.

Detailed Description of Activities

    The project supports existing and future planned water transit 
services operated by WETA, and regional policies to encourage transit 
uses. Furthermore, the project addresses deficiencies in the 
transportation network that impede water transit operation, passenger 
access, and passenger circulation at the Ferry Terminal.
    The project includes construction of two new water transit gates 
and associated overwater berthing facilities, in addition to supportive 
improvements, such as additional passenger waiting and queuing areas 
and circulation improvements in a 7.7-acre area (see Figure 1 in the 
WETA's application, which depicts the project area, and Figure 2, which 
depicts the project improvements). The project includes the following 
elements: (1) Removal of portions of existing deck and pile 
construction (portions will remain as open water, and other portions 
will be replaced); (2) Construction of two new gates (Gates F and G); 
(3) Relocation of an existing gate (Gate E); and (4) Improved passenger 
boarding areas, amenities, and circulation, including extending the 
East Bayside Promenade along Gates E, F, and G; strengthening the South 
Apron of the Agriculture Building; creating the Embarcadero Plaza; and 
installing weather protection canopies for passenger queuing.
    Implementation of the project improvements will result in a change 
in the type and area of structures over San Francisco Bay. In some 
areas, structures will be demolished and then rebuilt. The project will 
require both the removal and installation of piles as summarized in 
Table 1. Demolition and construction could be completed within 23 
months.

                                Table 1--Summary of Pile Removal and Installation
----------------------------------------------------------------------------------------------------------------
                                                                                               Number of piles/
         Project element             Pile diameter         Pile type            Method             schedule
----------------------------------------------------------------------------------------------------------------
Demolition in the South Basin...  12 to 18 inches...  Wood and concrete.  Pull or cut off 2   350 piles/30 days
                                                                           feet below mud      2016.
                                                                           line.
Removal of Dolphin Piles in the   36 inches.........  Steel: 140 to 150   Pull out..........  Four dolphin
 South Basin.                                          feet in length.                         piles.
Embarcadero Plaza and East        24 or 36 inches...  Steel: 135 to 155   Impact or           220 24- or 36-inch
 Bayside Promenade.                                    feet in length.     Vibratory Driver.   piles/65 days
                                                                                               2016.
Gates E, F, and G Dolphin Piles.  36 inches.........  Steel: 145 to 155   Impact or           14 total: Two at
                                                       feet in length.     Vibratory Driver.   each of the
                                                                                               floats for
                                                                                               protection; two
                                                                                               between each of
                                                                                               the floats; and
                                                                                               four adjacent to
                                                                                               the breakwater.
Gates F and G Guide Piles.......  36 inches.........  Steel: 140 to 150   Impact or           12 (6 per gate)/12
                                                       feet in length.     Vibratory Driver.   days 2017.
Gate E Guide Piles..............  36 inches.........  Steel: 145 to 155   Vibratory Driver    Six piles will be
                                                       feet in length.     for removal, may    removed and
                                                                           be reinstalled      reinstalled/12
                                                                           with an impact      days 2017.
                                                                           driver.
Fender Piles....................  14 inches.........  Polyurethane-       Impact or           38/10 days 2016.
                                                       coated pressure-    Vibratory Driver.
                                                       treated wood; 64
                                                       feet in length.
----------------------------------------------------------------------------------------------------------------

Removal of Existing Facilities

    As part of the project, the remnants of Pier 2 will be demolished 
and removed. This consists of approximately 21,000 square feet of 
existing deck structure supported by approximately 350 wood and 
concrete piles. In addition, four dolphin piles will be removed. 
Demolition will be conducted from barges. Two barges will be required: 
One for materials storage, and one outfitted with demolition equipment 
(crane, clamshell bucket for pulling of piles, and excavator for 
removal of the deck). Diesel-powered tug boats will bring the barges to 
the project area, where they will be anchored. Piles will be removed by 
either cutting them off two feet below the mud line or pulling the 
pile.

Construction of Gates and Berthing Structures

    The new gates (Gates F and G) will be built similarly. Each gate 
will be designed with an entrance portal--a prominent doorway 
physically separating the berthing structures from the surrounding 
area. Berthing structures will be provided for each new gate, 
consisting of floats, gangways, and guide piles. The steel floats will 
be approximately 42 feet wide by 135 feet long. The steel truss 
gangways will be approximately 14 feet wide and 105 feet long. The 
gangway will be designed to rise and fall with tidal variations while 
meeting Americans with Disabilities Act

[[Page 33220]]

(ADA) requirements. The gangway and the float will be designed with 
canopies, consistent with the current design of existing Gates B and E. 
The berthing structures will be fabricated off site and floated to the 
project area by barge. Six steel guide piles will be required to secure 
each float in place. In addition, dolphin piles may be used at each 
berthing structure to protect against the collision of vessels with 
other structures or vessels. A total of up to 14 dolphin piles may be 
installed.
    Chock-block fendering will be added along the East Bayside 
Promenade, to adjacent structures to protect against collision. The 
chock-block fendering will consist of square, 12-inch-wide, 
polyurethane-coated, pressure-treated wood blocks that are connected 
along the side of the adjacent pier structure, and supported by 
polyurethane-coated, pressure-treated wood piles. In addition, the 
existing Gate E float will be moved 43 feet to the east, to align with 
the new gates and East Bayside Promenade. The existing six 36-inch-
diameter steel guide piles will be removed using vibratory extraction, 
and reinstalled to secure the Gate E float in place. Because of Gate 
E's new location, to meet ADA requirements, the existing 90-foot-long 
steel truss gangway will be replaced with a longer, 105-foot-long 
gangway.

Passenger Boarding and Circulation Areas

    Several improvements will be made to passenger boarding and 
circulation areas. New deck and pile-supported structures will be 
built.
     An Embarcadero Plaza, elevated approximately 3 to 4 feet 
above current grade, will be created. The Embarcadero Plaza will 
require new deck and pile construction to fill an open-water area and 
replace existing structures that do not comply with Essential 
Facilities requirements.
     The East Bayside Promenade will be extended to create 
continuous pedestrian access to Gates E, F, and G, as well as to meet 
public access and pedestrian circulation requirements along San 
Francisco Bay. It will extend approximately 430 feet in length, and 
will provide an approximately 25-foot-wide area for pedestrian 
circulation and public access along Gates E, F, and G. The perimeter of 
the East Bayside Promenade will also include a curbed edge with a 
guardrail.
     Short access piers, approximately 30 feet wide and 45 feet 
long, will extend from the East Bayside Promenade to the portal for 
each gate.
     The South Apron of the Agriculture Building will be 
upgraded to temporarily support access for passenger circulation. 
Depending on their condition, as determined during Final Design, the 
piles supporting this apron may need to be strengthened with steel 
jackets.
     Two canopies will be constructed along the East Bayside 
Promenade: One between Gates E and F, and one between Gates F and G. 
Each of the canopies will be 125 feet long and 20 feet wide. Each 
canopy will be supported by four columns at 35 feet on center, with 10-
foot cantilevers at either end. The canopies will be constructed of 
steel and glass, and will include photovoltaic cells.
    The new deck will be constructed on the piles, using a system of 
beam-and-flat-slab-concrete construction, similar to what has been 
built in the Ferry Building area. The beam-and-slab construction will 
be either precast or cast-in-place concrete (or a combination of the 
two), and approximately 2.5 feet thick. Above the structure, granite 
paving or a concrete topping slab will provide a finished pedestrian 
surface.
    The passenger facilities, amenities, and public space 
improvements--such as the entrance portals, canopy structures, 
lighting, guardrails, and furnishings--will be surface-mounted on the 
pier structures after the new construction and repair are complete. The 
canopies and entrance portals will be constructed offsite, delivered to 
the site, craned into place by barge, and assembled onsite. The glazing 
materials, cladding materials, granite pavers, guardrails, and 
furnishings will be assembled onsite.

Dredging Requirements

    The side-loading vessels require a depth of 12.5 feet below mean 
lower low water (MLLW) on the approach and in the berthing area. Based 
on a bathymetric survey conducted in 2015, it is estimated that the new 
Gates F and G will require dredging to meet the required depths. The 
expected dredging volumes are presented in Table 2. These estimates are 
based on dredging the approach areas to 123.5 feet below MLLW, and 2 
feet of overdredge depth, to account for inaccuracies in dredging 
practices. The dredging will take approximately 2 months.

                Table 2--Summary of Dredging Requirements
------------------------------------------------------------------------
            Dredging element                         Summary
------------------------------------------------------------------------
Initial Dredging
    Gate F.............................  0.78 acre/6,006 cubic yards.
    Gate G.............................  1.64 acres/14,473 cubic yards.
    Total for Gates F and G............  2.42 acres/20,479 cubic yards.
    Staging............................  On barges.
    Typical Equipment..................  Clamshell dredge on barge;
                                          disposal barge; survey boat.
    Duration...........................  2 months.
Maintenance Dredging
    Gates F and G......................  5,000 to 10,000 cubic yards.
    Frequency..........................  Every 3 or 4 years.
------------------------------------------------------------------------

    Based on observed patterns of sediment accumulation in the Ferry 
Terminal area, significant sediment accumulation will not be expected, 
because regular maintenance dredging is not currently required to 
maintain operations at existing Gates B and E. However, some dredging 
will likely be required on a regular maintenance cycle beneath the 
floats at Gates F and G, due to their proximity to the Pier 14 
breakwater. It is expected that maintenance dredging will be required 
every 3 to 4 years, and will require removal of approximately 5,000 to 
10,000 cubic yards of material.
    Dredging and disposal of dredged materials will be conducted in 
cooperation with the San Francisco Dredged Materials Management Office 
(DMMO), including development of a sampling plan, sediment 
characterization, a sediment removal plan, and disposal in accordance 
with the Long-Term Management Strategy for San Francisco Bay to ensure 
beneficial reuse, as appropriate. DMMO consultation is expected to 
begin in early 2016. Based on the results of the sediment analysis, the 
alternatives for

[[Page 33221]]

placement of dredged materials will be evaluated, including disposal at 
the San Francisco Deep Ocean Disposal Site, disposal at an upland 
facility, or beneficial reuse. Selection of the disposal site will be 
reviewed and approved by the DMMO.

Description of Marine Mammals in the Area of the Specified Activity

    There are seven marine mammal species which may inhabit or may 
likely transit through the waters nearby the Ferry Terminal, and which 
are expected to potentially be taken by the specified activity. These 
include the Pacific harbor seal (Phoca vitulina), California sea lion 
(Zalophus californianus), Northern Elephant seal (Mirounga 
angustirostris), Northern fur seal (Callorhinus ursinus), harbor 
porpoise (Phocoena phocoena), gray whale (Eschrichtius robustus), and 
bottlenose dolphin (Tursiops truncatus). Multiple additional marine 
mammal species may occasionally enter the activity area in San 
Francisco Bay but would not be expected to occur in shallow nearshore 
waters of the action area. Guadalupe fur seals (Arctocephalus 
townsendi) generally do not occur in San Francisco Bay; however, there 
have been recent sightings of this species due to the El Ni[ntilde]o 
event. Only single individuals of this species have occasionally been 
sighted inside San Francisco Bay, and their presence near the action 
area is considered unlikely. No takes are requested for this species, 
and mitigation measures such as a shutdown zone will be in effect for 
this species if observed approaching the Level B harassment zone. 
Although it is possible that a humpback whale (Megaptera navaeangliae) 
may enter San Francisco Bay and find its way into the project area 
during construction activities, their occurrence is unlikely. No takes 
are requested for this species, and mitigation measures such as a delay 
and shutdown procedure will be in effect for this species if observed 
approaching the Level B harassment zone. Table 3 lists the marine 
mammal species with expected potential for occurrence in the vicinity 
of the SF Ferry terminal during the project timeframe and summarizes 
key information regarding stock status and abundance. Taxonomically, we 
follow Committee on Taxonomy (2014). Please see NMFS' Stock Assessment 
Reports (SAR), available at www.nmfs.noaa.gov/pr/sars, for more 
detailed accounts of these stocks' status and abundance. Please also 
refer to NMFS' Web site (www.nmfs.noaa.gov/pr/species/mammals) for 
generalized species accounts.

           Table 3--Marine Mammals Potentially Present in the Vicinity of San Francisco Ferry Terminal
----------------------------------------------------------------------------------------------------------------
                                                                Stock abundance                      Relative
                                                   ESA/MMPA     (CV, Nmin, most                   occurrence in
           Species                 Stock           Status;           recent           PBR 3       Strait of Juan
                                               strategic (Y/N)     abundance                     de Fuca; season
                                                      1            survey) 2                      of occurrence
----------------------------------------------------------------------------------------------------------------
        Order Cetartiodactyla--Cetacea--Superfamily Odontoceti (toothed whales, dolphins, and porpoises)
----------------------------------------------------------------------------------------------------------------
Family Phocoenidae
 (porpoises)
Harbor porpoise.............  San Francisco-   -; N...........  9,886 (0.51;                 66  Common.
                               Russian River.                    6,625; 2011).
----------------------------------------------------------------------------------------------------------------
        Order Cetartiodactyla--Cetacea--Superfamily Odontoceti (toothed whales, dolphins, and porpoises)
----------------------------------------------------------------------------------------------------------------
Family Delphinidae
 (dolphins)
Bottlenose dolphin 5........  California       -; N...........  323 (0.13; 290;             2.4  Rare.
                               coastal.                          2005).
----------------------------------------------------------------------------------------------------------------
        Order Cetartiodactyla--Cetacea--Superfamily Odontoceti (toothed whales, dolphins, and porpoises)
----------------------------------------------------------------------------------------------------------------
Family Eschrichtiidae
Gray whale..................  Eastern N.       -; N...........  20,990 (0.05;               624  Rare.
                               Pacific.                          20,125; 2011).
----------------------------------------------------------------------------------------------------------------
                      Order Cetartiodactyla--Cetacea--Superfamily Mysticeti (baleen whales)
----------------------------------------------------------------------------------------------------------------
Family Balaenopteridae
Humpback whale..............  California/      E; S...........  1,918..........              11  Unlikely.
                               Oregon/
                               Washington
                               stock.
----------------------------------------------------------------------------------------------------------------
                                     Order Carnivora--Superfamily Pinnipedia
----------------------------------------------------------------------------------------------------------------
Family Otariidae (eared
 seals and sea lions)
California sea lion.........  U.S............  -; N...........  296,750 (n/a;             9,200  Common.
                                                                 153,337; 2011).
Guadalupe fur seal 5........  Mexico to        T; S...........  7,408 (n/a;                  91  Unlikely.
                               California.                       3,028; 1993).
Northern fur seal...........  California       -; N...........  14,050 (n/a;                451  Unlikely.
                               stock.                            7,524; 2013).
----------------------------------------------------------------------------------------------------------------
Family Phocidae (earless
 seals)
Harbor seal.................  California.....  -; N...........  30,968 (n/a;              1,641  Common; Year-
                                                                 27,348; 2012).                   round
                                                                                                  resident.
Northern elephant seal......  California       -; N...........  179,000 (n/a;             4,882  Rare.
                               breeding stock.                   81,368; 2010).
----------------------------------------------------------------------------------------------------------------
1 ESA status: Endangered (E), Threatened (T)/MMPA status: Depleted (D). A dash (-) indicates that the species is
  not listed under the ESA or designated as depleted under the MMPA. Under the MMPA, a strategic stock is one
  for which the level of direct human-caused mortality exceeds PBR (see footnote 3) or which is determined to be
  declining and likely to be listed under the ESA within the foreseeable future. Any species or stock listed
  under the ESA is automatically designated under the MMPA as depleted and as a strategic stock.

[[Page 33222]]

 
2 CV is coefficient of variation; Nmin is the minimum estimate of stock abundance. In some cases, CV is not
  applicable. For certain stocks, abundance estimates are actual counts of animals and there is no associated
  CV. The most recent abundance survey that is reflected in the abundance estimate is presented; there may be
  more recent surveys that have not yet been incorporated into the estimate.
3 Potential biological removal, defined by the MMPA as the maximum number of animals, not including natural
  mortalities, that may be removed from a marine mammal stock while allowing that stock to reach or maintain its
  optimum sustainable population size (OSP).
4 These values, found in NMFS' SARs, represent annual levels of human-caused mortality plus serious injury from
  all sources combined (e.g., commercial fisheries, subsistence hunting, ship strike). Annual M/SI often cannot
  be determined precisely and is in some cases presented as a minimum value. All values presented here are from
  the draft 2015 SARs (www.nmfs.noaa.gov/pr/sars/draft.htm).
5 Abundance estimates for these stocks are greater than eight years old and are therefore not considered
  current. PBR is considered undetermined for these stocks, as there is no current minimum abundance estimate
  for use in calculation. We nevertheless present the most recent abundance estimates and PBR values, as these
  represent the best available information for use in this document.

    Below, for those species that are likely to be taken by the 
activities described, we offer a brief introduction to the species and 
relevant stock as well as available information regarding population 
trends and threats, and describe any information regarding local 
occurrence.

Harbor Seal

    The Pacific harbor seal is one of five subspecies of Phoca 
vitulina, or the common harbor seal. There are five species of harbor 
seal in the Pacific EEZ: (1) California stock; (2) Oregon/Washington 
coast stock; (3) Washington Northern inland waters stock; (4) Southern 
Puget Sound stock; and (5) Hood Canal stock. Only the California stock 
occurs in the action area and is analyzed in this document. The current 
abundance estimate for this stock is 30,968. This stock is not 
considered strategic or designated as depleted under the MMPA and is 
not listed under the ESA. PBR is 1,641 animals per year. The average 
annual rate of incidental commercial fishery mortality (30 animals) is 
less than 10% of the calculated PBR (1,641 animals); therefore, fishery 
mortality is considered insignificant (Allen and Angliss, 2013).
    Although generally solitary in the water, harbor seals congregate 
at haulouts to rest, socialize, breed, molt. Habitats used as haul-out 
sites include tidal rocks, bayflats, sandbars, and sandy beaches 
(Zeiner et al., 1990). Haul-out sites are relatively consistent from 
year-to-year (Kopec and Harvey, 1995), and females have been recorded 
returning to their own natal haul-out when breeding (Cunningham et al., 
2009). Long-term monitoring studies have been conducted at the largest 
harbor seal colonies in Point Reyes National Seashore and Golden Gate 
National Recreation Area since 1976. Castro Rocks and other haulouts in 
San Francisco Bay are part of the regional survey area for this study 
and have been included in annual survey efforts. Between 2007 and 2012, 
the average number of adults observed ranged from 126 to 166 during the 
breeding season (March through May), and from 92 to 129 during the 
molting season (June through July) (Truchinski et al., 2008; Flynn et 
al., 2009; Codde et al., 2010; Codde et al., 2011; Codde et al., 2012; 
Codde and Allen, 2015). Marine mammal monitoring at multiple locations 
inside San Francisco Bay was conducted by Caltrans from May 1998 to 
February 2002, and determined that at least 500 harbor seals populate 
San Francisco Bay (Green et al., 2002). This estimate is consistent 
with previous seal counts in the San Francisco Bay, which ranged from 
524 to 641 seals from 1987 to 1999 (Goals Project, 2000). Although 
harbor seals haul-out at approximately 20 locations in San Francisco 
Bay, there are three locations that serve as primary locations: Mowry 
Slough in the south Bay, Corte Madera Marsh and Castro Rocks in the 
north Bay, and Yerba Buena Island in the central Bay (Grigg, 2008; 
Gibble, 2011). The main pupping areas in the San Francisco Bay are at 
Mowry Slough and Castro Rocks (Caltrans, 2012). Pupping season for 
harbor seals in San Francisco Bay spans from approximately March 15 
through May 31, with pup numbers generally peaking in late April or May 
(Caretta et al 2015). Births of harbor seals have not been observed at 
Corte Madera Marsh and Yerba Buena Island, but a few pups have been 
seen at these sites. Harbor seals forage in shallow waters on a variety 
of fish and crustaceans that are present throughout much of San 
Francisco Bay, and therefore could occasionally be found foraging in 
the action area as well.

California Sea Lion

    California sea lions range all along the western border of North 
America. The breeding areas of the California sea lion are on islands 
located in southern California, western Baja California, and the Gulf 
of California (Allen and Angliss 2015). Although California sea lions 
forage and conduct many activities in the water, they also use haul-
outs. California sea lions breed in Southern California and along the 
Channel Islands during the spring. The current population estimate for 
California sea lions is 296,750 animals. This species is not considered 
strategic under the MMPA, and is not designated as depleted. This 
species is also not listed under the ESA. PBR is 9,200 (Caretta et al, 
2015). Interactions with fisheries, boat collisions, human 
interactions, and entanglement are the main threats to this species 
(Caretta et al 2015).
    El Ni[ntilde]o affects California sea lion populations, with 
increased observations and strandings of this species in the area. 
Current observations of this species in CA have increased significantly 
over the past few years. Additionally, as a result of the large numbers 
of sea lion strandings in 2013, NOAA declared an unusual mortality 
event (UME). Although the exact causes of this UME are unknown, two 
hypotheses meriting further study include nutritional stress of pups 
resulting from a lack of forage fish available to lactating mothers and 
unknown disease agents during that time period.
    In San Francisco Bay, sea lions haul out primarily on floating K 
docks at Pier 39 in the Fisherman's Wharf area of the San Francisco 
Marina. The Pier 39 haul out is approximately 1.5 miles from the 
project vicinity. The Marine Mammal Center (TMMC) in Sausalito, 
California has performed monitoring surveys at this location since 
1991. A maximum of 1,706 sea lions was seen hauled out during one 
survey effort in 2009 (TMMC, 2015). Winter numbers are generally over 
500 animals (Goals Project, 2000). In August to September, counts 
average from 350 to 850 (NMFS, 2004). Of the California sea lions 
observed, approximately 85 percent were male. No pupping activity has 
been observed at this site or at other locations in the San Francisco 
Bay (Caltrans, 2012). The California sea lions usually frequent Pier 39 
in August after returning from the Channel Islands (Caltrans, 2013). In 
addition to the Pier 39 haul-out, California sea lions haul out on 
buoys and similar structures throughout San Francisco Bay. They mainly 
are seen swimming off the San Francisco and Marin shorelines within San 
Francisco Bay, but may occasionally enter the project area to forage.
    Although there is little information regarding the foraging 
behavior of the California sea lion in the San Francisco Bay, they have 
been observed foraging

[[Page 33223]]

on a regular basis in the shipping channel south of Yerba Buena Island. 
Foraging grounds have also been identified for pinnipeds, including sea 
lions, between Yerba Buena Island and Treasure Island, as well as off 
the Tiburon Peninsula (Caltrans, 2001).

Northern Elephant Seal

    Northern elephant seals breed and give birth in California (U.S.) 
and Baja California (Mexico), primarily on offshore islands (Stewart et 
al. 1994), from December to March (Stewart and Huber 1993). Although 
movement and genetic exchange continues between rookeries, most 
elephant seals return to natal rookeries when they start breeding 
(Huber et al. 1991). The California breeding population is now 
demographically isolated from the Baja California population, and is 
the only stock to occur near the action area. The current abundance 
estimate for this stock is 179,000 animals, with PBR at 4,882 animals 
(Caretta et al 2015). The population is reported to have grown at 3.8% 
annually since 1988 (Lowry et al. 2014). Fishery interactions and 
marine debris entanglement are the biggest threats to this species 
(Caretta et al 2015). Northern elephant seals are not listed under the 
Endangered Species Act, nor are they designated as depleted, or 
considered strategic under the MMPA.
    Northern elephant seals are common on California coastal mainland 
and island sites where they pup, breed, rest, and molt. The largest 
rookeries are on San Nicolas and San Miguel islands in the Northern 
Channel Islands. In the vicinity of San Francisco Bay, elephant seals 
breed, molt, and haul out at A[ntilde]o Nuevo Island, the Farallon 
Islands, and Point Reyes National Seashore (Lowry et al., 2014). Adults 
reside in offshore pelagic waters when not breeding or molting. 
Northern elephant seals haul out to give birth and breed from December 
through March, and pups remain onshore or in adjacent shallow water 
through May, when they may occasionally make brief stops in San 
Francisco Bay (Caltrans, 2015b). The most recent sighting was in 2012 
on the beach at Clipper Cove on Treasure Island, when a healthy 
yearling elephant seal hauled out for approximately one day. 
Approximately 100 juvenile northern elephant seals strand in San 
Francisco Bay each year, including individual strandings at Yerba Buena 
Island and Treasure Island (fewer than 10 strandings per year) 
(Caltrans, 2015b). When pups of the year return in the late summer and 
fall to haul out at rookery sites, they may also occasionally make 
brief stops in San Francisco Bay.

Northern Fur Seal

    Northern fur seals (Callorhinus ursinus) occur from southern 
California north to the Bering Sea and west to the Okhotsk Sea and 
Honshu Island, Japan. During the breeding season, approximately 74% of 
the worldwide population is found on the Pribilof Islands in the 
southern Bering Sea, with the remaining animals spread throughout the 
North Pacific Ocean (Lander and Kajimura 1982). Of the seals in U.S. 
waters outside of the Pribilofs, approximately one percent of the 
population is found on Bogoslof Island in the southern Bering Sea, San 
Miguel Island off southern California (NMFS 2007), and the Farallon 
Islands off central California. Two separate stocks of northern fur 
seals are recognized within U.S. waters: An Eastern Pacific stock and a 
California stock (including San Miguel Island and the Farallon 
Islands). Only the California breeding stock is considered here since 
it is the only stock to occur near the action area. The current 
abundance estimate for this stock is 14,050 and PBR is set at 451 
animals (Caretta et al 2015). This stock has grown exponentially during 
the past several years. Interaction with fisheries remains the top 
threat to this species (Caretta et al, 2015). This stock is not 
considered depleted or classified as strategic under the MMPA, and is 
not listed under the ESA.

Harbor Porpoise

    In the Pacific, harbor porpoise are found in coastal and inland 
waters from Point Conception, California to Alaska and across to 
Kamchatka and Japan (Gaskin 1984). Harbor porpoise appear to have more 
restricted movements along the western coast of the continental U.S. 
than along the eastern coast. Regional differences in pollutant 
residues in harbor porpoise indicate that they do not move extensively 
between California, Oregon, and Washington (Calambokidis and Barlow 
1991). That study also showed some regional differences within 
California (Allen and Angliss, 2014). Of the 10 stocks of Pacific 
harbor porpoise, only the San Francisco-Russian River stock is 
considered here since it is the only stock to occur near the action 
area. This current abundance estimate for this stock is 9,886 animals, 
with a PBR of 66 animals (Caretta et al 2015). Current population 
trends are not available for this stock. The main threats to this stock 
include fishery interactions. This stock is not designated as strategic 
or considered depleted under the MMPA, and is not listed under the ESA.

Gray Whale

    Once common throughout the Northern Hemisphere, the gray whale was 
extinct in the Atlantic by the early 1700s. Gray whales are now only 
commonly found in the North Pacific. Genetic comparisons indicate there 
are distinct ``Eastern North Pacific'' (ENP) and ``Western North 
Pacific'' (WNP) population stocks, with differentiation in both mtDNA 
haplotype and microsatellite allele frequencies (LeDuc et al. 2002; 
Lang et al. 2011a; Weller et al. 2013). Only the ENP stock occurs in 
the action area and is considered in this document. The current 
population estimate for this stock is 20,990 animals, with PBR at 624 
animals (Caretta et al, 2015). The population size of the ENP gray 
whale stock has increased over several decades despite an UME in 1999 
and 2000 and has been relatively stable since the mid-1990s. 
Interactions with fisheries, ship strikes, entanglement in marine 
debris, and habitat degradation are the main concerns for the gray 
whale population (Caretta et al 2015). This stock is not listed under 
the ESA, and is not considered a strategic stock or designated as 
depleted under the MMPA.

Bottlenose Dolphin

    Bottlenose dolphins are distributed worldwide in tropical and warm-
temperate waters. In many regions, including California, separate 
coastal and offshore populations are known (Walker 1981; Ross and 
Cockcroft 1990; Van Waerebeek et al. 1990). There are genetic 
differences between the populations; based on nuclear and mtDNA 
analyses, there are no shared haplotypes between coastal and offshore 
animals and significant genetic differentiation between the two 
ecotypes was evident (Caretta et al 2008). California coastal 
bottlenose dolphins are found within about one kilometer of shore 
(Hansen, 1990; Carretta et al. 1998; Defran and Weller 1999) primarily 
from Point Conception south into Mexican waters, at least as far south 
as San Quintin, Mexico. Oceanographic events appear to influence the 
distribution of animals along the coasts of California and Baja 
California, Mexico, as indicated by El Ni[ntilde]o events. There are 
three stocks of bottlenose dolphins in the Pacific: (1) California 
coastal stock, (2) California, Oregon, and Washington offshore stock, 
and (3) Hawaiian stock. Only the California coastal stock may occur in 
the action area. The current stock abundance estimate for the 
California

[[Page 33224]]

coastal stock is 323 animals, with PBR at 2.4 animals (Caretta et al 
2008). Pollutant levels in California are a threat to this species, and 
this stock may be vulnerable to disease outbreaks, particularly 
morbillivirus (Caretta et al 2008). This stock is not listed under the 
ESA, and is not considered strategic or designated as depleted under 
the MMPA.

Potential Effects of the Specified Activity on Marine Mammals and Their 
Habitat

    This section includes a summary and discussion of the ways that 
components of the specified activity (e.g., sound produced by pile 
driving) may impact marine mammals and their habitat. The Estimated 
Take by Incidental Harassment section later in this document will 
include a quantitative analysis of the number of individuals that are 
expected to be taken by this activity. The Negligible Impact Analysis 
section will include an analysis of how this specific activity will 
impact marine mammals and will consider the content of this section, 
the Estimated Take by Incidental Harassment section and the Proposed 
Mitigation section to draw conclusions regarding the likely impacts of 
this activity on the reproductive success or survivorship of 
individuals and from that on the affected marine mammal populations or 
stocks. In the following discussion, we provide general background 
information on sound and marine mammal hearing before considering 
potential effects to marine mammals from sound produced by vibratory 
and impact pile driving.

Description of Sound Sources

    Sound travels in waves, the basic components of which are 
frequency, wavelength, velocity, and amplitude. Frequency is the number 
of pressure waves that pass by a reference point per unit of time and 
is measured in hertz (Hz) or cycles per second. Wavelength is the 
distance between two peaks of a sound wave; lower frequency sounds have 
longer wavelengths than higher frequency sounds and attenuate 
(decrease) more rapidly in shallower water. Amplitude is the height of 
the sound pressure wave or the `loudness' of a sound and is typically 
measured using the decibel (dB) scale. A dB is the ratio between a 
measured pressure (with sound) and a reference pressure (sound at a 
constant pressure, established by scientific standards). It is a 
logarithmic unit that accounts for large variations in amplitude; 
therefore, relatively small changes in dB ratings correspond to large 
changes in sound pressure. When referring to sound pressure levels 
(SPLs; the sound force per unit area), sound is referenced in the 
context of underwater sound pressure to 1 microPascal ([mu]Pa). One 
pascal is the pressure resulting from a force of one newton exerted 
over an area of one square meter. The source level (SL) represents the 
sound level at a distance of 1 m from the source (referenced to 1 
[mu]Pa). The received level is the sound level at the listener's 
position. Note that all underwater sound levels in this document are 
referenced to a pressure of 1 [mu]Pa and all airborne sound levels in 
this document are referenced to a pressure of 20 [mu]Pa.
    Root mean square (rms) is the quadratic mean sound pressure over 
the duration of an impulse. Rms is calculated by squaring all of the 
sound amplitudes, averaging the squares, and then taking the square 
root of the average (Urick, 1983). Rms accounts for both positive and 
negative values; squaring the pressures makes all values positive so 
that they may be accounted for in the summation of pressure levels 
(Hastings and Popper, 2005). This measurement is often used in the 
context of discussing behavioral effects, in part because behavioral 
effects, which often result from auditory cues, may be better expressed 
through averaged units than by peak pressures.
    When underwater objects vibrate or activity occurs, sound-pressure 
waves are created. These waves alternately compress and decompress the 
water as the sound wave travels. Underwater sound waves radiate in all 
directions away from the source (similar to ripples on the surface of a 
pond), except in cases where the source is directional. The 
compressions and decompressions associated with sound waves are 
detected as changes in pressure by aquatic life and man-made sound 
receptors such as hydrophones.
    Even in the absence of sound from the specified activity, the 
underwater environment is typically loud due to ambient sound. Ambient 
sound is defined as environmental background sound levels lacking a 
single source or point (Richardson et al., 1995), and the sound level 
of a region is defined by the total acoustical energy being generated 
by known and unknown sources. These sources may include physical (e.g., 
waves, earthquakes, ice, atmospheric sound), biological (e.g., sounds 
produced by marine mammals, fish, and invertebrates), and anthropogenic 
sound (e.g., vessels, dredging, aircraft, construction). A number of 
sources contribute to ambient sound, including the following 
(Richardson et al., 1995):
     Wind and waves: The complex interactions between wind and 
water surface, including processes such as breaking waves and wave-
induced bubble oscillations and cavitation, are a main source of 
naturally occurring ambient noise for frequencies between 200 Hz and 50 
kHz (Mitson, 1995). In general, ambient sound levels tend to increase 
with increasing wind speed and wave height. Surf noise becomes 
important near shore, with measurements collected at a distance of 8.5 
km from shore showing an increase of 10 dB in the 100 to 700 Hz band 
during heavy surf conditions.
     Precipitation: Sound from rain and hail impacting the 
water surface can become an important component of total noise at 
frequencies above 500 Hz, and possibly down to 100 Hz during quiet 
times.
     Biological: Marine mammals can contribute significantly to 
ambient noise levels, as can some fish and shrimp. The frequency band 
for biological contributions is from approximately 12 Hz to over 100 
kHz.
     Anthropogenic: Sources of ambient noise related to human 
activity include transportation (surface vessels and aircraft), 
dredging and construction, oil and gas drilling and production, seismic 
surveys, sonar, explosions, and ocean acoustic studies. Shipping noise 
typically dominates the total ambient noise for frequencies between 20 
and 300 Hz. In general, the frequencies of anthropogenic sounds are 
below 1 kHz and, if higher frequency sound levels are created, they 
attenuate rapidly (Richardson et al., 1995). Sound from identifiable 
anthropogenic sources other than the activity of interest (e.g., a 
passing vessel) is sometimes termed background sound, as opposed to 
ambient sound.
    The sum of the various natural and anthropogenic sound sources at 
any given location and time--which comprise ``ambient'' or 
``background'' sound--depends not only on the source levels (as 
determined by current weather conditions and levels of biological and 
shipping activity) but also on the ability of sound to propagate 
through the environment. In turn, sound propagation is dependent on the 
spatially and temporally varying properties of the water column and sea 
floor, and is frequency-dependent. As a result of the dependence on a 
large number of varying factors, ambient sound levels can be expected 
to vary widely over both coarse and fine spatial and temporal scales. 
Sound levels at a given frequency and location can vary by 10-20 dB 
from day to day (Richardson et al., 1995). The result is that, 
depending on the source type and its intensity, sound from the 
specified activity may be a negligible addition to

[[Page 33225]]

the local environment or could form a distinctive signal that may 
affect marine mammals.
    The underwater acoustic environment at the ferry terminal is likely 
to be dominated by noise from day-to-day port and vessel activities. 
This is a highly industrialized area with high-use from small- to 
medium-sized vessels, and larger vessel that use the nearby major 
shipping channel. Underwater sound levels for water transit vessels, 
which operate throughout the day from the San Francisco Ferry Building 
ranged from 152 dB to 177 dB (WETA, 2003a). While there are no current 
measurements of ambient noise levels at the ferry terminal, it is 
likely that levels within the basin periodically exceed the 120 dB 
threshold and, therefore, that the high levels of anthropogenic 
activity in the basin create an environment far different from quieter 
habitats where behavioral reactions to sounds around the 120 dB 
threshold have been observed (e.g., Malme et al., 1984, 1988).
    In-water construction activities associated with the project would 
include impact pile driving and vibratory pile driving. The sounds 
produced by these activities fall into one of two general sound types: 
Pulsed and non-pulsed (defined in the following). The distinction 
between these two sound types is important because they have differing 
potential to cause physical effects, particularly with regard to 
hearing (e.g., Ward, 1997 in Southall et al., 2007). Please see 
Southall et al., (2007) for an in-depth discussion of these concepts.
    Pulsed sound sources (e.g., explosions, gunshots, sonic booms, 
impact pile driving) produce signals that are brief (typically 
considered to be less than one second), broadband, atonal transients 
(ANSI, 1986; Harris, 1998; NIOSH, 1998; ISO, 2003; ANSI, 2005) and 
occur either as isolated events or repeated in some succession. Pulsed 
sounds are all characterized by a relatively rapid rise from ambient 
pressure to a maximal pressure value followed by a rapid decay period 
that may include a period of diminishing, oscillating maximal and 
minimal pressures, and generally have an increased capacity to induce 
physical injury as compared with sounds that lack these features.
    Non-pulsed sounds can be tonal, narrowband, or broadband, brief or 
prolonged, and may be either continuous or non-continuous (ANSI, 1995; 
NIOSH, 1998). Some of these non-pulsed sounds can be transient signals 
of short duration but without the essential properties of pulses (e.g., 
rapid rise time). Examples of non-pulsed sounds include those produced 
by vessels, aircraft, machinery operations such as drilling or 
dredging, vibratory pile driving, and active sonar systems (such as 
those used by the U.S. Navy). The duration of such sounds, as received 
at a distance, can be greatly extended in a highly reverberant 
environment.
    Impact hammers operate by repeatedly dropping a heavy piston onto a 
pile to drive the pile into the substrate. Sound generated by impact 
hammers is characterized by rapid rise times and high peak levels, a 
potentially injurious combination (Hastings and Popper, 2005). 
Vibratory hammers install piles by vibrating them and allowing the 
weight of the hammer to push them into the sediment. Vibratory hammers 
produce significantly less sound than impact hammers. Peak SPLs may be 
180 dB or greater, but are generally 10 to 20 dB lower than SPLs 
generated during impact pile driving of the same-sized pile (Oestman et 
al., 2009). Rise time is slower, reducing the probability and severity 
of injury, and sound energy is distributed over a greater amount of 
time (Nedwell and Edwards, 2002; Carlson et al., 2005).

Marine Mammal Hearing

    Hearing is the most important sensory modality for marine mammals, 
and exposure to sound can have deleterious effects. To appropriately 
assess these potential effects, it is necessary to understand the 
frequency ranges marine mammals are able to hear. Current data indicate 
that not all marine mammal species have equal hearing capabilities 
(e.g., Richardson et al., 1995; Wartzok and Ketten, 1999; Au and 
Hastings, 2008). To reflect this, Southall et al. (2007) recommended 
that marine mammals be divided into functional hearing groups based on 
measured or estimated hearing ranges on the basis of available 
behavioral data, audiograms derived using auditory evoked potential 
techniques, anatomical modeling, and other data. The lower and/or upper 
frequencies for some of these functional hearing groups have been 
modified from those designated by Southall et al. (2007). The 
functional groups and the associated frequencies are indicated below 
(note that these frequency ranges do not necessarily correspond to the 
range of best hearing, which varies by species):
     Low frequency cetaceans (13 species of mysticetes): 
Functional hearing is estimated to occur between approximately 7 Hz and 
25 kHz (up to 30 kHz in some species), with best hearing estimated to 
be from 100 Hz to 8 kHz (Watkins, 1986; Ketten, 1998; Houser et al., 
2001; Au et al., 2006; Lucifredi and Stein, 2007; Ketten et al., 2007; 
Parks et al., 2007a; Ketten and Mountain, 2009; Tubelli et al., 2012);
     Mid-frequency cetaceans (32 species of dolphins, six 
species of larger toothed whales, and 19 species of beaked and 
bottlenose whales): Functional hearing is estimated to occur between 
approximately 150 Hz and 160 kHz with best hearing from 10 to less than 
100 kHz (Johnson, 1967; White, 1977; Richardson et al., 1995; Szymanski 
et al., 1999; Kastelein et al., 2003; Finneran et al., 2005a, 2009; 
Nachtigall et al., 2005, 2008; Yuen et al., 2005; Popov et al., 2007; 
Au and Hastings, 2008; Houser et al., 2008; Pacini et al., 2010, 2011; 
Schlundt et al., 2011);
     High frequency cetaceans (eight species of true porpoises, 
six species of river dolphins, and members of the genera Kogia and 
Cephalorhynchus; now considered to include two members of the genus 
Lagenorhynchus on the basis of recent echolocation data and genetic 
data [May-Collado and Agnarsson, 2006; Kyhn et al. 2009, 2010; Tougaard 
et al. 2010]): Functional hearing is estimated to occur between 
approximately 200 Hz and 180 kHz (Popov and Supin, 1990a,b; Kastelein 
et al., 2002; Popov et al., 2005);
     Phocid pinnipeds in Water: Functional hearing is estimated 
to occur between approximately 75 Hz and 100 kHz with best hearing 
between 1-50 kHz (M[oslash]hl, 1968; Terhune and Ronald, 1971, 1972; 
Richardson et al., 1995; Kastak and Schusterman, 1999; Reichmuth, 2008; 
Kastelein et al., 2009); and
    Otariid pinnipeds in Water: Functional hearing is estimated to 
occur between approximately 100 Hz and 48 kHz, with best hearing 
between 2-48 kHz (Schusterman et al., 1972; Moore and Schusterman, 
1987; Babushina et al., 1991; Richardson et al., 1995; Kastak and 
Schusterman, 1998; Kastelein et al., 2005a; Mulsow and Reichmuth, 2007; 
Mulsow et al., 2011a, b).
    The pinniped functional hearing group was modified from Southall et 
al. (2007) on the basis of data indicating that phocid species have 
consistently demonstrated an extended frequency range of hearing 
compared to otariids, especially in the higher frequency range 
(Hemil[auml] et al., 2006; Kastelein et al., 2009; Reichmuth et al., 
2013).
    As mentioned previously in this document, seven marine mammal 
species (three cetaceans and four pinnipeds) may occur in the project 
area. Of these three cetaceans, one is classified as a low-frequency 
cetacean

[[Page 33226]]

(i.e. gray whale), one is classified as a mid-frequency cetacean (i.e., 
bottlenose dolphin), and one is classified as a high-frequency 
cetaceans (i.e., harbor porpoise) (Southall et al., 2007). 
Additionally, harbor seals, Northern fur seals, and Northern elephant 
seals are classified as members of the phocid pinnipeds in water 
functional hearing group while California sea lions are grouped under 
the Otariid pinnipeds in water functional hearing group. A species' 
functional hearing group is a consideration when we analyze the effects 
of exposure to sound on marine mammals.

Acoustic Impacts

    Please refer to the information given previously (Description of 
Sound Sources) regarding sound, characteristics of sound types, and 
metrics used in this document. Anthropogenic sounds cover a broad range 
of frequencies and sound levels and can have a range of highly variable 
impacts on marine life, from none or minor to potentially severe 
responses, depending on received levels, duration of exposure, 
behavioral context, and various other factors. The potential effects of 
underwater sound from active acoustic sources can potentially result in 
one or more of the following: Temporary or permanent hearing 
impairment, non-auditory physical or physiological effects, behavioral 
disturbance, stress, and masking (Richardson et al., 1995; Gordon et 
al., 2004; Nowacek et al., 2007; Southall et al., 2007; Gotz et al., 
2009). The degree of effect is intrinsically related to the signal 
characteristics, received level, distance from the source, and duration 
of the sound exposure. In general, sudden, high level sounds can cause 
hearing loss, as can longer exposures to lower level sounds. Temporary 
or permanent loss of hearing will occur almost exclusively for noise 
within an animal's hearing range. We first describe specific 
manifestations of acoustic effects before providing discussion specific 
to WETA's construction activities.
    Richardson et al. (1995) described zones of increasing intensity of 
effect that might be expected to occur, in relation to distance from a 
source and assuming that the signal is within an animal's hearing 
range. First is the area within which the acoustic signal would be 
audible (potentially perceived) to the animal, but not strong enough to 
elicit any overt behavioral or physiological response. The next zone 
corresponds with the area where the signal is audible to the animal and 
of sufficient intensity to elicit behavioral or physiological 
responsiveness. Third is a zone within which, for signals of high 
intensity, the received level is sufficient to potentially cause 
discomfort or tissue damage to auditory or other systems. Overlaying 
these zones to a certain extent is the area within which masking (i.e., 
when a sound interferes with or masks the ability of an animal to 
detect a signal of interest that is above the absolute hearing 
threshold) may occur; the masking zone may be highly variable in size.
    We describe the more severe effects (i.e., permanent hearing 
impairment, certain non-auditory physical or physiological effects) 
only briefly as we do not expect that there is a reasonable likelihood 
that WETA's activities may result in such effects (see below for 
further discussion). Marine mammals exposed to high-intensity sound, or 
to lower-intensity sound for prolonged periods, can experience hearing 
threshold shift (TS), which is the loss of hearing sensitivity at 
certain frequency ranges (Kastak et al., 1999; Schlundt et al., 2000; 
Finneran et al., 2002, 2005b). TS can be permanent (PTS), in which case 
the loss of hearing sensitivity is not fully recoverable, or temporary 
(TTS), in which case the animal's hearing threshold would recover over 
time (Southall et al., 2007). Repeated sound exposure that leads to TTS 
could cause PTS. In severe cases of PTS, there can be total or partial 
deafness, while in most cases the animal has an impaired ability to 
hear sounds in specific frequency ranges (Kryter, 1985).
    When PTS occurs, there is physical damage to the sound receptors in 
the ear (i.e., tissue damage), whereas TTS represents primarily tissue 
fatigue and is reversible (Southall et al., 2007). In addition, other 
investigators have suggested that TTS is within the normal bounds of 
physiological variability and tolerance and does not represent physical 
injury (e.g., Ward, 1997). Therefore, NMFS does not consider TTS to 
constitute auditory injury.
    Relationships between TTS and PTS thresholds have not been studied 
in marine mammals--PTS data exists only for a single harbor seal 
(Kastak et al., 2008)--but are assumed to be similar to those in humans 
and other terrestrial mammals. PTS typically occurs at exposure levels 
at least several decibels above (a 40-dB threshold shift approximates 
PTS onset; e.g., Kryter et al., 1966; Miller, 1974) that inducing mild 
TTS (a 6-dB threshold shift approximates TTS onset; e.g., Southall et 
al. 2007). Based on data from terrestrial mammals, a precautionary 
assumption is that the PTS thresholds for impulse sounds (such as 
impact pile driving pulses as received close to the source) are at 
least 6 dB higher than the TTS threshold on a peak-pressure basis and 
PTS cumulative sound exposure level thresholds are 15 to 20 dB higher 
than TTS cumulative sound exposure level thresholds (Southall et al., 
2007). Given the higher level of sound or longer exposure duration 
necessary to cause PTS as compared with TTS, it is considerably less 
likely that PTS could occur.
    Non-auditory physiological effects or injuries that theoretically 
might occur in marine mammals exposed to high level underwater sound or 
as a secondary effect of extreme behavioral reactions (e.g., change in 
dive profile as a result of an avoidance reaction) caused by exposure 
to sound include neurological effects, bubble formation, resonance 
effects, and other types of organ or tissue damage (Cox et al., 2006; 
Southall et al., 2007; Zimmer and Tyack, 2007). WETA's activities do 
not involve the use of devices such as explosives or mid-frequency 
active sonar that are associated with these types of effects.
    When a live or dead marine mammal swims or floats onto shore and is 
incapable of returning to sea, the event is termed a ``stranding'' (16 
U.S.C. 1421h(3)). Marine mammals are known to strand for a variety of 
reasons, such as infectious agents, biotoxicosis, starvation, fishery 
interaction, ship strike, unusual oceanographic or weather events, 
sound exposure, or combinations of these stressors sustained 
concurrently or in series (e.g., Geraci et al., 1999). However, the 
cause or causes of most strandings are unknown (e.g., Best, 1982). 
Combinations of dissimilar stressors may combine to kill an animal or 
dramatically reduce its fitness, even though one exposure without the 
other would not be expected to produce the same outcome (e.g., Sih et 
al., 2004). For further description of stranding events see, e.g., 
Southall et al., 2006; Jepson et al., 2013; Wright et al., 2013.
    1. Temporary threshold shift--TTS is the mildest form of hearing 
impairment that can occur during exposure to sound (Kryter, 1985). 
While experiencing TTS, the hearing threshold rises, and a sound must 
be at a higher level in order to be heard. In terrestrial and marine 
mammals, TTS can last from minutes or hours to days (in cases of strong 
TTS). In many cases, hearing sensitivity recovers rapidly after 
exposure to the sound ends. Few data on sound levels and durations 
necessary to elicit mild TTS have been obtained for marine mammals, and 
none of the data published at the time of this writing

[[Page 33227]]

concern TTS elicited by exposure to multiple pulses of sound.
    Marine mammal hearing plays a critical role in communication with 
conspecifics, and interpretation of environmental cues for purposes 
such as predator avoidance and prey capture. Depending on the degree 
(elevation of threshold in dB), duration (i.e., recovery time), and 
frequency range of TTS, and the context in which it is experienced, TTS 
can have effects on marine mammals ranging from discountable to 
serious. For example, a marine mammal may be able to readily compensate 
for a brief, relatively small amount of TTS in a non-critical frequency 
range that occurs during a time where ambient noise is lower and there 
are not as many competing sounds present. Alternatively, a larger 
amount and longer duration of TTS sustained during time when 
communication is critical for successful mother/calf interactions could 
have more serious impacts.
    Currently, TTS data only exist for four species of cetaceans 
(bottlenose dolphin, beluga whale [Delphinapterus leucas], harbor 
porpoise, and Yangtze finless porpoise [Neophocoena asiaeorientalis]) 
and three species of pinnipeds (northern elephant seal, harbor seal, 
and California sea lion) exposed to a limited number of sound sources 
(i.e., mostly tones and octave-band noise) in laboratory settings 
(e.g., Finneran et al., 2002; Nachtigall et al., 2004; Kastak et al., 
2005; Lucke et al., 2009; Popov et al., 2011). In general, harbor seals 
(Kastak et al., 2005; Kastelein et al., 2012a) and harbor porpoises 
(Lucke et al., 2009; Kastelein et al., 2012b) have a lower TTS onset 
than other measured pinniped or cetacean species. Additionally, the 
existing marine mammal TTS data come from a limited number of 
individuals within these species. There are no data available on noise-
induced hearing loss for mysticetes. For summaries of data on TTS in 
marine mammals or for further discussion of TTS onset thresholds, 
please see Southall et al. (2007) and Finneran and Jenkins (2012).
    2. Behavioral effects--Behavioral disturbance may include a variety 
of effects, including subtle changes in behavior (e.g., minor or brief 
avoidance of an area or changes in vocalizations), more conspicuous 
changes in similar behavioral activities, and more sustained and/or 
potentially severe reactions, such as displacement from or abandonment 
of high-quality habitat. Behavioral responses to sound are highly 
variable and context-specific and any reactions depend on numerous 
intrinsic and extrinsic factors (e.g., species, state of maturity, 
experience, current activity, reproductive state, auditory sensitivity, 
time of day), as well as the interplay between factors (e.g., 
Richardson et al., 1995; Wartzok et al., 2003; Southall et al., 2007; 
Weilgart, 2007; Archer et al., 2010). Behavioral reactions can vary not 
only among individuals but also within an individual, depending on 
previous experience with a sound source, context, and numerous other 
factors (Ellison et al., 2012), and can vary depending on 
characteristics associated with the sound source (e.g., whether it is 
moving or stationary, number of sources, distance from the source). 
Please see Appendices B-C of Southall et al. (2007) for a review of 
studies involving marine mammal behavioral responses to sound.
    Habituation can occur when an animal's response to a stimulus wanes 
with repeated exposure, usually in the absence of unpleasant associated 
events (Wartzok et al., 2003). Animals are most likely to habituate to 
sounds that are predictable and unvarying. It is important to note that 
habituation is appropriately considered as a ``progressive reduction in 
response to stimuli that are perceived as neither aversive nor 
beneficial,'' rather than as, more generally, moderation in response to 
human disturbance (Bejder et al., 2009). The opposite process is 
sensitization, when an unpleasant experience leads to subsequent 
responses, often in the form of avoidance, at a lower level of 
exposure. As noted, behavioral state may affect the type of response. 
For example, animals that are resting may show greater behavioral 
change in response to disturbing sound levels than animals that are 
highly motivated to remain in an area for feeding (Richardson et al., 
1995; NRC, 2003; Wartzok et al., 2003). Controlled experiments with 
captive marine mammals have showed pronounced behavioral reactions, 
including avoidance of loud sound sources (Ridgway et al., 1997; 
Finneran et al., 2003). Observed responses of wild marine mammals to 
loud pulsed sound sources (typically seismic airguns or acoustic 
harassment devices) have been varied but often consist of avoidance 
behavior or other behavioral changes suggesting discomfort (Morton and 
Symonds, 2002; see also Richardson et al., 1995; Nowacek et al., 2007).
    Available studies show wide variation in response to underwater 
sound; therefore, it is difficult to predict specifically how any given 
sound in a particular instance might affect marine mammals perceiving 
the signal. If a marine mammal does react briefly to an underwater 
sound by changing its behavior or moving a small distance, the impacts 
of the change are unlikely to be significant to the individual, let 
alone the stock or population. However, if a sound source displaces 
marine mammals from an important feeding or breeding area for a 
prolonged period, impacts on individuals and populations could be 
significant (e.g., Lusseau and Bejder, 2007; Weilgart, 2007; NRC, 
2005). However, there are broad categories of potential response, which 
we describe in greater detail here, that include alteration of dive 
behavior, alteration of foraging behavior, effects to breathing, 
interference with or alteration of vocalization, avoidance, and flight.
    Changes in dive behavior can vary widely, and may consist of 
increased or decreased dive times and surface intervals as well as 
changes in the rates of ascent and descent during a dive (e.g., Frankel 
and Clark, 2000; Costa et al., 2003; Ng and Leung, 2003; Nowacek et 
al.; 2004; Goldbogen et al., 2013a,b). Variations in dive behavior may 
reflect interruptions in biologically significant activities (e.g., 
foraging) or they may be of little biological significance. The impact 
of an alteration to dive behavior resulting from an acoustic exposure 
depends on what the animal is doing at the time of the exposure and the 
type and magnitude of the response.
    Disruption of feeding behavior can be difficult to correlate with 
anthropogenic sound exposure, so it is usually inferred by observed 
displacement from known foraging areas, the appearance of secondary 
indicators (e.g., bubble nets or sediment plumes), or changes in dive 
behavior. As for other types of behavioral response, the frequency, 
duration, and temporal pattern of signal presentation, as well as 
differences in species sensitivity, are likely contributing factors to 
differences in response in any given circumstance (e.g., Croll et al., 
2001; Nowacek et al.; 2004; Madsen et al., 2006; Yazvenko et al., 
2007). A determination of whether foraging disruptions incur fitness 
consequences would require information on or estimates of the energetic 
requirements of the affected individuals and the relationship between 
prey availability, foraging effort and success, and the life history 
stage of the animal.
    Variations in respiration naturally vary with different behaviors 
and alterations to breathing rate as a function of acoustic exposure 
can be expected to co-occur with other behavioral reactions, such as a 
flight response or an alteration in diving. However, respiration rates 
in and of themselves may be representative of annoyance or an acute 
stress response.

[[Page 33228]]

Various studies have shown that respiration rates may either be 
unaffected or could increase, depending on the species and signal 
characteristics, again highlighting the importance in understanding 
species differences in the tolerance of underwater noise when 
determining the potential for impacts resulting from anthropogenic 
sound exposure (e.g., Kastelein et al., 2001, 2005b, 2006; Gailey et 
al., 2007).
    Marine mammals vocalize for different purposes and across multiple 
modes, such as whistling, echolocation click production, calling, and 
singing. Changes in vocalization behavior in response to anthropogenic 
noise can occur for any of these modes and may result from a need to 
compete with an increase in background noise or may reflect increased 
vigilance or a startle response. For example, in the presence of 
potentially masking signals, humpback whales and killer whales have 
been observed to increase the length of their songs (Miller et al., 
2000; Fristrup et al., 2003; Foote et al., 2004), while right whales 
have been observed to shift the frequency content of their calls upward 
while reducing the rate of calling in areas of increased anthropogenic 
noise (Parks et al., 2007b). In some cases, animals may cease sound 
production during production of aversive signals (Bowles et al., 1994).
    Avoidance is the displacement of an individual from an area or 
migration path as a result of the presence of a sound or other 
stressors, and is one of the most obvious manifestations of disturbance 
in marine mammals (Richardson et al., 1995). For example, gray whales 
are known to change direction--deflecting from customary migratory 
paths--in order to avoid noise from seismic surveys (Malme et al., 
1984). Avoidance may be short-term, with animals returning to the area 
once the noise has ceased (e.g., Bowles et al., 1994; Goold, 1996; 
Stone et al., 2000; Morton and Symonds, 2002; Gailey et al., 2007). 
Longer-term displacement is possible, however, which may lead to 
changes in abundance or distribution patterns of the affected species 
in the affected region if habituation to the presence of the sound does 
not occur (e.g., Blackwell et al., 2004; Bejder et al., 2006; Teilmann 
et al., 2006).
    A flight response is a dramatic change in normal movement to a 
directed and rapid movement away from the perceived location of a sound 
source. The flight response differs from other avoidance responses in 
the intensity of the response (e.g., directed movement, rate of 
travel). Relatively little information on flight responses of marine 
mammals to anthropogenic signals exist, although observations of flight 
responses to the presence of predators have occurred (Connor and 
Heithaus, 1996). The result of a flight response could range from 
brief, temporary exertion and displacement from the area where the 
signal provokes flight to, in extreme cases, marine mammal strandings 
(Evans and England, 2001). However, it should be noted that response to 
a perceived predator does not necessarily invoke flight (Ford and 
Reeves, 2008), and whether individuals are solitary or in groups may 
influence the response.
    Behavioral disturbance can also impact marine mammals in more 
subtle ways. Increased vigilance may result in costs related to 
diversion of focus and attention (i.e., when a response consists of 
increased vigilance, it may come at the cost of decreased attention to 
other critical behaviors such as foraging or resting). These effects 
have generally not been demonstrated for marine mammals, but studies 
involving fish and terrestrial animals have shown that increased 
vigilance may substantially reduce feeding rates (e.g., Beauchamp and 
Livoreil, 1997; Fritz et al., 2002; Purser and Radford, 2011). In 
addition, chronic disturbance can cause population declines through 
reduction of fitness (e.g., decline in body condition) and subsequent 
reduction in reproductive success, survival, or both (e.g., Harrington 
and Veitch, 1992; Daan et al., 1996; Bradshaw et al., 1998). However, 
Ridgway et al. (2006) reported that increased vigilance in bottlenose 
dolphins exposed to sound over a five-day period did not cause any 
sleep deprivation or stress effects.
    Many animals perform vital functions, such as feeding, resting, 
traveling, and socializing, on a diel cycle (24-hour cycle). Disruption 
of such functions resulting from reactions to stressors such as sound 
exposure are more likely to be significant if they last more than one 
diel cycle or recur on subsequent days (Southall et al., 2007). 
Consequently, a behavioral response lasting less than one day and not 
recurring on subsequent days is not considered particularly severe 
unless it could directly affect reproduction or survival (Southall et 
al., 2007). Note that there is a difference between multi-day 
substantive behavioral reactions and multi-day anthropogenic 
activities. For example, just because an activity lasts for multiple 
days does not necessarily mean that individual animals are either 
exposed to activity-related stressors for multiple days or, further, 
exposed in a manner resulting in sustained multi-day substantive 
behavioral responses.
    3. Stress responses--An animal's perception of a threat may be 
sufficient to trigger stress responses consisting of some combination 
of behavioral responses, autonomic nervous system responses, 
neuroendocrine responses, or immune responses (e.g., Seyle, 1950; 
Moberg, 2000). In many cases, an animal's first and sometimes most 
economical (in terms of energetic costs) response is behavioral 
avoidance of the potential stressor. Autonomic nervous system responses 
to stress typically involve changes in heart rate, blood pressure, and 
gastrointestinal activity. These responses have a relatively short 
duration and may or may not have a significant long-term effect on an 
animal's fitness.
    Neuroendocrine stress responses often involve the hypothalamus-
pituitary-adrenal system. Virtually all neuroendocrine functions that 
are affected by stress--including immune competence, reproduction, 
metabolism, and behavior--are regulated by pituitary hormones. Stress-
induced changes in the secretion of pituitary hormones have been 
implicated in failed reproduction, altered metabolism, reduced immune 
competence, and behavioral disturbance (e.g., Moberg, 1987; Blecha, 
2000). Increases in the circulation of glucocorticoids are also equated 
with stress (Romano et al., 2004).
    The primary distinction between stress (which is adaptive and does 
not normally place an animal at risk) and ``distress'' is the cost of 
the response. During a stress response, an animal uses glycogen stores 
that can be quickly replenished once the stress is alleviated. In such 
circumstances, the cost of the stress response would not pose serious 
fitness consequences. However, when an animal does not have sufficient 
energy reserves to satisfy the energetic costs of a stress response, 
energy resources must be diverted from other functions. This state of 
distress will last until the animal replenishes its energetic reserves 
sufficient to restore normal function.
    Relationships between these physiological mechanisms, animal 
behavior, and the costs of stress responses are well-studied through 
controlled experiments and for both laboratory and free-ranging animals 
(e.g., Holberton et al., 1996; Hood et al., 1998; Jessop et al., 2003; 
Krausman et al., 2004; Lankford et al., 2005). Stress responses due to 
exposure to anthropogenic sounds or other stressors and their effects 
on marine mammals have also been reviewed (Fair and Becker, 2000; 
Romano et al., 2002b) and, more rarely, studied in wild populations 
(e.g., Romano et al., 2002a).

[[Page 33229]]

For example, Rolland et al. (2012) found that noise reduction from 
reduced ship traffic in the Bay of Fundy was associated with decreased 
stress in North Atlantic right whales. These and other studies lead to 
a reasonable expectation that some marine mammals will experience 
physiological stress responses upon exposure to acoustic stressors and 
that it is possible that some of these would be classified as 
``distress.'' In addition, any animal experiencing TTS would likely 
also experience stress responses (NRC, 2003).
    4. Auditory masking--Sound can disrupt behavior through masking, or 
interfering with, an animal's ability to detect, recognize, or 
discriminate between acoustic signals of interest (e.g., those used for 
intraspecific communication and social interactions, prey detection, 
predator avoidance, navigation) (Richardson et al., 1995). Masking 
occurs when the receipt of a sound is interfered with by another 
coincident sound at similar frequencies and at similar or higher 
intensity, and may occur whether the sound is natural (e.g., snapping 
shrimp, wind, waves, precipitation) or anthropogenic (e.g., shipping, 
sonar, seismic exploration) in origin. The ability of a noise source to 
mask biologically important sounds depends on the characteristics of 
both the noise source and the signal of interest (e.g., signal-to-noise 
ratio, temporal variability, direction), in relation to each other and 
to an animal's hearing abilities (e.g., sensitivity, frequency range, 
critical ratios, frequency discrimination, directional discrimination, 
age or TTS hearing loss), and existing ambient noise and propagation 
conditions.
    Under certain circumstances, marine mammals experiencing 
significant masking could also be impaired from maximizing their 
performance fitness in survival and reproduction. Therefore, when the 
coincident (masking) sound is man-made, it may be considered harassment 
when disrupting or altering critical behaviors. It is important to 
distinguish TTS and PTS, which persist after the sound exposure, from 
masking, which occurs during the sound exposure. Because masking 
(without resulting in TS) is not associated with abnormal physiological 
function, it is not considered a physiological effect, but rather a 
potential behavioral effect.
    The frequency range of the potentially masking sound is important 
in determining any potential behavioral impacts. For example, low-
frequency signals may have less effect on high-frequency echolocation 
sounds produced by odontocetes but are more likely to affect detection 
of mysticete communication calls and other potentially important 
natural sounds such as those produced by surf and some prey species. 
The masking of communication signals by anthropogenic noise may be 
considered as a reduction in the communication space of animals (e.g., 
Clark et al., 2009) and may result in energetic or other costs as 
animals change their vocalization behavior (e.g., Miller et al., 2000; 
Foote et al., 2004; Parks et al., 2007b; Di Iorio and Clark, 2009; Holt 
et al., 2009). Masking can be reduced in situations where the signal 
and noise come from different directions (Richardson et al., 1995), 
through amplitude modulation of the signal, or through other 
compensatory behaviors (Houser and Moore, 2014). Masking can be tested 
directly in captive species (e.g., Erbe, 2008), but in wild populations 
it must be either modeled or inferred from evidence of masking 
compensation. There are few studies addressing real-world masking 
sounds likely to be experienced by marine mammals in the wild (e.g., 
Branstetter et al., 2013).
    Masking affects both senders and receivers of acoustic signals and 
can potentially have long-term chronic effects on marine mammals at the 
population level as well as at the individual level. Low-frequency 
ambient sound levels have increased by as much as 20 dB (more than 
three times in terms of SPL) in the world's ocean from pre-industrial 
periods, with most of the increase from distant commercial shipping 
(Hildebrand, 2009). All anthropogenic sound sources, but especially 
chronic and lower-frequency signals (e.g., from vessel traffic), 
contribute to elevated ambient sound levels, thus intensifying masking.

Acoustic Effects, Underwater

    Potential Effects of Pile Driving Sound--The effects of sounds from 
pile driving might include one or more of the following: temporary or 
permanent hearing impairment, non-auditory physical or physiological 
effects, behavioral disturbance, and masking (Richardson et al., 1995; 
Gordon et al., 2003; Nowacek et al., 2007; Southall et al., 2007). The 
effects of pile driving on marine mammals are dependent on several 
factors, including the type and depth of the animal; the pile size and 
type, and the intensity and duration of the pile driving sound; the 
substrate; the standoff distance between the pile and the animal; and 
the sound propagation properties of the environment. Impacts to marine 
mammals from pile driving activities are expected to result primarily 
from acoustic pathways. As such, the degree of effect is intrinsically 
related to the frequency, received level, and duration of the sound 
exposure, which are in turn influenced by the distance between the 
animal and the source. The further away from the source, the less 
intense the exposure should be. The substrate and depth of the habitat 
affect the sound propagation properties of the environment. In 
addition, substrates that are soft (e.g., sand) would absorb or 
attenuate the sound more readily than hard substrates (e.g., rock) 
which may reflect the acoustic wave. Soft porous substrates would also 
likely require less time to drive the pile, and possibly less forceful 
equipment, which would ultimately decrease the intensity of the 
acoustic source.
    In the absence of mitigation, impacts to marine species could be 
expected to include physiological and behavioral responses to the 
acoustic signature (Viada et al., 2008). Potential effects from 
impulsive sound sources like pile driving can range in severity from 
effects such as behavioral disturbance to temporary or permanent 
hearing impairment (Yelverton et al., 1973).
    Hearing Impairment and Other Physical Effects--Marine mammals 
exposed to high intensity sound repeatedly or for prolonged periods can 
experience hearing threshold shifts. PTS constitutes injury, but TTS 
does not (Southall et al., 2007). Based on the best scientific 
information available, the SPLs for the construction activities in this 
project are far below the thresholds that could cause TTS or the onset 
of PTS: 180 dB re 1 [mu]Pa rms for odontocetes and 190 dB re 1 [mu]Pa 
rms for pinnipeds (Table 4).
    Non-auditory Physiological Effects--Non-auditory physiological 
effects or injuries that theoretically might occur in marine mammals 
exposed to strong underwater sound include stress, neurological 
effects, bubble formation, resonance effects, and other types of organ 
or tissue damage (Cox et al., 2006; Southall et al., 2007). Studies 
examining such effects are limited. In general, little is known about 
the potential for pile driving to cause auditory impairment or other 
physical effects in marine mammals. Available data suggest that such 
effects, if they occur at all, would presumably be limited to short 
distances from the sound source and to activities that extend over a 
prolonged period. The available data do not allow identification of a 
specific exposure level above which non-auditory effects can be 
expected (Southall et al., 2007) or any meaningful quantitative 
predictions of the numbers (if any) of

[[Page 33230]]

marine mammals that might be affected in those ways. Marine mammals 
that show behavioral avoidance of pile driving, including some 
odontocetes and some pinnipeds, are especially unlikely to incur 
auditory impairment or non-auditory physical effects.

Disturbance Reactions

    Responses to continuous sound, such as vibratory pile installation, 
have not been documented as well as responses to pulsed sounds. With 
both types of pile driving, it is likely that the onset of pile driving 
could result in temporary, short term changes in an animal's typical 
behavior and/or avoidance of the affected area. These behavioral 
changes may include (Richardson et al., 1995): changing durations of 
surfacing and dives, number of blows per surfacing, or moving direction 
and/or speed; reduced/increased vocal activities; changing/cessation of 
certain behavioral activities (such as socializing or feeding); visible 
startle response or aggressive behavior (such as tail/fluke slapping or 
jaw clapping); avoidance of areas where sound sources are located; and/
or flight responses (e.g., pinnipeds flushing into water from haul-outs 
or rookeries). Pinnipeds may increase their haul-out time, possibly to 
avoid in-water disturbance (Thorson and Reyff, 2006). If a marine 
mammal responds to a stimulus by changing its behavior (e.g., through 
relatively minor changes in locomotion direction/speed or vocalization 
behavior), the response may or may not constitute taking at the 
individual level, and is unlikely to affect the stock or the species as 
a whole. However, if a sound source displaces marine mammals from an 
important feeding or breeding area for a prolonged period, impacts on 
animals, and if so potentially on the stock or species, could 
potentially be significant (e.g., Lusseau and Bejder, 2007; Weilgart, 
2007).
    The biological significance of many of these behavioral 
disturbances is difficult to predict, especially if the detected 
disturbances appear minor. However, the consequences of behavioral 
modification could be expected to be biologically significant if the 
change affects growth, survival, or reproduction. Significant 
behavioral modifications that could potentially lead to effects on 
growth, survival, or reproduction include:
     Drastic changes in diving/surfacing patterns (such as 
those thought to cause beaked whale stranding due to exposure to 
military mid-frequency tactical sonar);
     Longer-term habitat abandonment due to loss of desirable 
acoustic environment; and
     Longer-term cessation of feeding or social interaction.
    The onset of behavioral disturbance from anthropogenic sound 
depends on both external factors (characteristics of sound sources and 
their paths) and the specific characteristics of the receiving animals 
(hearing, motivation, experience, demography) and is difficult to 
predict (Southall et al., 2007).

Auditory Masking

    Natural and artificial sounds can disrupt behavior by masking. The 
frequency range of the potentially masking sound is important in 
determining any potential behavioral impacts. Because sound generated 
from in-water pile driving is mostly concentrated at low frequency 
ranges, it may have less effect on high frequency echolocation sounds 
made by porpoises. The most intense underwater sounds in the proposed 
action are those produced by impact pile driving. Given that the energy 
distribution of pile driving covers a broad frequency spectrum, sound 
from these sources would likely be within the audible range of marine 
mammals present in the project area. Impact pile driving activity is 
relatively short-term, with rapid pulses occurring for approximately 
fifteen minutes per pile. The probability for impact pile driving 
resulting from this proposed action masking acoustic signals important 
to the behavior and survival of marine mammal species is low. Vibratory 
pile driving is also relatively short-term, with rapid oscillations 
occurring for approximately one and a half hours per pile. It is 
possible that vibratory pile driving resulting from this proposed 
action may mask acoustic signals important to the behavior and survival 
of marine mammal species, but the short-term duration and limited 
affected area would result in insignificant impacts from masking. Any 
masking event that could possibly rise to Level B harassment under the 
MMPA would occur concurrently within the zones of behavioral harassment 
already estimated for vibratory and impact pile driving, and which have 
already been taken into account in the exposure analysis.
    Acoustic Effects, Airborne--Pinnipeds that occur near the project 
site could be exposed to airborne sounds associated with pile driving 
that have the potential to cause behavioral harassment, depending on 
their distance from pile driving activities. Cetaceans are not expected 
to be exposed to airborne sounds that would result in harassment as 
defined under the MMPA.
    Airborne noise will primarily be an issue for pinnipeds that are 
swimming or hauled out near the project site within the range of noise 
levels elevated above the acoustic criteria in Table 4. We recognize 
that pinnipeds in the water could be exposed to airborne sound that may 
result in behavioral harassment when looking with heads above water. 
Most likely, airborne sound would cause behavioral responses similar to 
those discussed above in relation to underwater sound. For instance, 
anthropogenic sound could cause hauled-out pinnipeds to exhibit changes 
in their normal behavior, such as reduction in vocalizations, or cause 
them to temporarily abandon the area and move further from the source. 
However, these animals would previously have been `taken' as a result 
of exposure to underwater sound above the behavioral harassment 
thresholds, which are in all cases larger than those associated with 
airborne sound. Thus, the behavioral harassment of these animals is 
already accounted for in these estimates of potential take. Multiple 
instances of exposure to sound above NMFS' thresholds for behavioral 
harassment are not believed to result in increased behavioral 
disturbance, in either nature or intensity of disturbance reaction. 
Therefore, we do not believe that authorization of incidental take 
resulting from airborne sound for pinnipeds is warranted, and airborne 
sound is not discussed further here.

Anticipated Effects on Habitat

    The proposed activities at the Ferry Terminal would not result in 
permanent negative impacts to habitats used directly by marine mammals, 
but may have potential short-term impacts to food sources such as 
forage fish and may affect acoustic habitat (see masking discussion 
above). There are no known foraging hotspots or other ocean bottom 
structure of significant biological importance to marine mammals 
present in the marine waters of the project area. Therefore, the main 
impact issue associated with the proposed activity would be temporarily 
elevated sound levels and the associated direct effects on marine 
mammals, as discussed previously in this document. The primary 
potential acoustic impacts to marine mammal habitat are associated with 
elevated sound levels produced by vibratory and impact pile driving and 
removal in the area. However, other potential impacts to the 
surrounding habitat from physical disturbance are also possible.

[[Page 33231]]

Pile Driving Effects on Potential Prey (Fish)

    Construction activities would produce continuous (i.e., vibratory 
pile driving sounds and pulsed (i.e. impact driving) sounds. Fish react 
to sounds that are especially strong and/or intermittent low-frequency 
sounds. Short duration, sharp sounds can cause overt or subtle changes 
in fish behavior and local distribution. Hastings and Popper (2005) 
identified several studies that suggest fish may relocate to avoid 
certain areas of sound energy. Additional studies have documented 
effects of pile driving on fish, although several are based on studies 
in support of large, multiyear bridge construction projects (e.g., 
Scholik and Yan, 2001, 2002; Popper and Hastings, 2009). Sound pulses 
at received levels of 160 dB may cause subtle changes in fish behavior. 
SPLs of 180 dB may cause noticeable changes in behavior (Pearson et 
al., 1992; Skalski et al., 1992). SPLs of sufficient strength have been 
known to cause injury to fish and fish mortality.
    The most likely impact to fish from pile driving activities at the 
project area would be temporary behavioral avoidance of the area. The 
duration of fish avoidance of this area after pile driving stops is 
unknown, but a rapid return to normal recruitment, distribution and 
behavior is anticipated. In general, impacts to marine mammal prey 
species are expected to be minor and temporary due to the short 
timeframe for the project.

Pile Driving Effects on Potential Foraging Habitat

    The area likely impacted by the project is relatively small 
compared to the available habitat in San Francisco Bay. Avoidance by 
potential prey (i.e., fish) of the immediate area due to the temporary 
loss of this foraging habitat is also possible. The duration of fish 
avoidance of this area after pile driving stops is unknown, but a rapid 
return to normal recruitment, distribution and behavior is anticipated. 
Any behavioral avoidance by fish of the disturbed area would still 
leave significantly large areas of fish and marine mammal foraging 
habitat in the San Francisco ferry terminal and nearby vicinity.
    In summary, given the short daily duration of sound associated with 
individual pile driving events and the relatively small areas being 
affected, pile driving activities associated with the proposed action 
are not likely to have a permanent, adverse effect on any fish habitat, 
or populations of fish species. Thus, any impacts to marine mammal 
habitat are not expected to cause significant or long-term consequences 
for individual marine mammals or their populations.

Proposed Mitigation

    In order to issue an IHA under section 101(a)(5)(D) of the MMPA, 
NMFS must set forth the permissible methods of taking pursuant to such 
activity, and other means of effecting the least practicable impact on 
such species or stock and its habitat, paying particular attention to 
rookeries, mating grounds, and areas of similar significance, and on 
the availability of such species or stock for taking for certain 
subsistence uses.
    Measurements from similar pile driving events were coupled with 
practical spreading loss to estimate zones of influence (ZOI; see 
Estimated Take by Incidental Harassment); these values were used to 
develop mitigation measures for pile driving activities at the ferry 
terminal. The ZOIs effectively represent the mitigation zone that would 
be established around each pile to prevent Level A harassment to marine 
mammals, while providing estimates of the areas within which Level B 
harassment might occur. In addition to the specific measures described 
later in this section, WETA would conduct briefings between 
construction supervisors and crews, marine mammal monitoring team, and 
WETA staff prior to the start of all pile driving activity, and when 
new personnel join the work, in order to explain responsibilities, 
communication procedures, marine mammal monitoring protocol, and 
operational procedures.

Monitoring and Shutdown for Pile Driving

    The following measures would apply to WETA's mitigation through 
shutdown and disturbance zones:
    Shutdown Zone--For all pile driving activities, WETA will establish 
a shutdown zone intended to contain the area in which SPLs equal or 
exceed the 180/190 dB rms acoustic injury criteria for cetaceans and 
pinnipeds, respectively. The purpose of a shutdown zone is to define an 
area within which shutdown of activity would occur upon sighting of a 
marine mammal (or in anticipation of an animal entering the defined 
area), thus preventing injury of marine mammals (as described 
previously under Potential Effects of the Specified Activity on Marine 
Mammals, serious injury or death are unlikely outcomes even in the 
absence of mitigation measures). Modeled radial distances for shutdown 
zones are shown in Table 6. However, a minimum shutdown zone of 10 m 
will be established during all pile driving activities, regardless of 
the estimated zone. Vibratory pile driving activities are not predicted 
to produce sound exceeding the 180/190-dB Level A harassment threshold, 
but these precautionary measures are intended to prevent the already 
unlikely possibility of physical interaction with construction 
equipment and to further reduce any possibility of acoustic injury.
    Disturbance Zone--Disturbance zones are the areas in which SPLs 
equal or exceed 160 and 120 dB rms (for impulse and continuous sound, 
respectively). Disturbance zones provide utility for monitoring 
conducted for mitigation purposes (i.e., shutdown zone monitoring) by 
establishing monitoring protocols for areas adjacent to the shutdown 
zones. Monitoring of disturbance zones enables observers to be aware of 
and communicate the presence of marine mammals in the project area but 
outside the shutdown zone and thus prepare for potential shutdowns of 
activity. However, the primary purpose of disturbance zone monitoring 
is for documenting instances of Level B harassment; disturbance zone 
monitoring is discussed in greater detail later (see Proposed 
Monitoring and Reporting). Nominal radial distances for disturbance 
zones are shown in Table 6. Given the size of the disturbance zone for 
vibratory pile driving, it is impossible to guarantee that all animals 
would be observed or to make comprehensive observations of fine-scale 
behavioral reactions to sound, and only a portion of the zone (e.g., 
what may be reasonably observed by visual observers stationed within 
the turning basin) would be observed.
    In order to document observed instances of harassment, monitors 
record all marine mammal observations, regardless of location. The 
observer's location, as well as the location of the pile being driven, 
is known from a GPS. The location of the animal is estimated as a 
distance from the observer, which is then compared to the location from 
the pile. It may then be estimated whether the animal was exposed to 
sound levels constituting incidental harassment on the basis of 
predicted distances to relevant thresholds in post-processing of 
observational and acoustic data, and a precise accounting of observed 
incidences of harassment created. This information may then be used to 
extrapolate observed takes to reach an approximate understanding of 
actual total takes.
    Monitoring Protocols--Monitoring would be conducted before, during, 
and after pile driving activities. In addition, observers shall record 
all instances of

[[Page 33232]]

marine mammal occurrence, regardless of distance from activity, and 
shall document any behavioral reactions in concert with distance from 
piles being driven. Observations made outside the shutdown zone will 
not result in shutdown; that pile segment would be completed without 
cessation, unless the animal approaches or enters the shutdown zone, at 
which point all pile driving activities would be halted. Monitoring 
will take place from fifteen minutes prior to initiation through thirty 
minutes post-completion of pile driving activities. Pile driving 
activities include the time to install or remove a single pile or 
series of piles, as long as the time elapsed between uses of the pile 
driving equipment is no more than thirty minutes. Please see the 
Monitoring Plan (www.nmfs.noaa.gov/pr/permits/incidental/construction.htm), developed by WETA in agreement with NMFS, for full 
details of the monitoring protocols.
    The following additional measures apply to visual monitoring:
    (1) Monitoring will be conducted by qualified observers, who will 
be placed at the best vantage point(s) practicable to monitor for 
marine mammals and implement shutdown/delay procedures when applicable 
by calling for the shutdown to the hammer operator. Qualified observers 
are typically trained biologists, with the following minimum 
qualifications:
     Visual acuity in both eyes (correction is permissible) 
sufficient for discernment of moving targets at the water's surface 
with ability to estimate target size and distance; use of binoculars 
may be necessary to correctly identify the target;
     Experience and ability to conduct field observations and 
collect data according to assigned protocols (this may include academic 
experience);
     Experience or training in the field identification of 
marine mammals, including the identification of behaviors;
     Sufficient training, orientation, or experience with the 
construction operation to provide for personal safety during 
observations;
     Writing skills sufficient to prepare a report of 
observations including but not limited to the number and species of 
marine mammals observed; dates and times when in-water construction 
activities were conducted; dates and times when in-water construction 
activities were suspended to avoid potential incidental injury from 
construction sound of marine mammals observed within a defined shutdown 
zone; and marine mammal behavior; and
     Ability to communicate orally, by radio or in person, with 
project personnel to provide real-time information on marine mammals 
observed in the area as necessary.
    (2) Prior to the start of pile driving activity, the shutdown zone 
will be monitored for fifteen minutes to ensure that it is clear of 
marine mammals. Pile driving will only commence once observers have 
declared the shutdown zone clear of marine mammals; animals will be 
allowed to remain in the shutdown zone (i.e., must leave of their own 
volition) and their behavior will be monitored and documented. The 
shutdown zone may only be declared clear, and pile driving started, 
when the entire shutdown zone is visible (i.e., when not obscured by 
dark, rain, fog, etc.). In addition, if such conditions should arise 
during impact pile driving that is already underway, the activity would 
be halted.
    (3) If a marine mammal approaches or enters the shutdown zone 
during the course of pile driving operations, activity will be halted 
and delayed until either the animal has voluntarily left and been 
visually confirmed beyond the shutdown zone or fifteen minutes have 
passed without re-detection of the animal. Monitoring will be conducted 
throughout the time required to drive a pile.
    (4) Using delay and shut-down procedures, if a species for which 
authorization has not been granted (including but not limited to 
Guadalupe fur seals and humpback whales) or if a species for which 
authorization has been granted but the authorized takes are met, 
approaches or is observed within the Level B harassment zone, 
activities will shut down immediately and not restart until the animals 
have been confirmed to have left the area.

Soft Start

    The use of a soft start procedure is believed to provide additional 
protection to marine mammals by warning or providing a chance to leave 
the area prior to the hammer operating at full capacity, and typically 
involves a requirement to initiate sound from the hammer at reduced 
energy followed by a waiting period. This procedure is repeated two 
additional times. It is difficult to specify the reduction in energy 
for any given hammer because of variation across drivers and, for 
impact hammers, the actual number of strikes at reduced energy will 
vary because operating the hammer at less than full power results in 
``bouncing'' of the hammer as it strikes the pile, resulting in 
multiple ``strikes.'' For impact driving, we require an initial set of 
three strikes from the impact hammer at reduced energy, followed by a 
thirty-second waiting period, then two subsequent three strike sets. 
Soft start will be required at the beginning of each day's impact pile 
driving work and at any time following a cessation of impact pile 
driving of thirty minutes or longer.
    We have carefully evaluated WETA's proposed mitigation measures and 
considered their effectiveness in past implementation to preliminarily 
determine whether they are likely to effect the least practicable 
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 in 
which, 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.
    Any mitigation measure(s) we prescribe should be able to 
accomplish, have a reasonable likelihood of accomplishing (based on 
current science), or contribute to the accomplishment of one or more of 
the general goals listed below:
    (1) Avoidance or minimization of injury or death of marine mammals 
wherever possible (goals 2, 3, and 4 may contribute to this goal).
    (2) A reduction in the number (total number or number at 
biologically important time or location) of individual marine mammals 
exposed to stimuli expected to result in incidental take (this goal may 
contribute to 1, above, or to reducing takes by behavioral harassment 
only).
    (3) A reduction in the number (total number or number at 
biologically important time or location) of times any individual marine 
mammal would be exposed to stimuli expected to result in incidental 
take (this goal may contribute to 1, above, or to reducing takes by 
behavioral harassment only).
    (4) A reduction in the intensity of exposure to stimuli expected to 
result in incidental take (this goal may contribute to 1, above, or to 
reducing the severity of behavioral harassment only).
    (5) Avoidance or minimization of adverse effects to marine mammal 
habitat, paying particular attention to the prey base, blockage or 
limitation of passage to or from biologically important areas, 
permanent destruction of habitat, or temporary disturbance of habitat 
during a biologically important time.

[[Page 33233]]

    (6) For monitoring directly related to mitigation, an increase in 
the probability of detecting marine mammals, thus allowing for more 
effective implementation of the mitigation.
    Based on our evaluation of WETA's proposed measures, as well as any 
other potential measures that may be relevant to the specified 
activity, we have preliminarily determined that the proposed mitigation 
measures provide the means of effecting the least practicable impact on 
marine mammal species or stocks and their habitat, paying particular 
attention to rookeries, mating grounds, and areas of similar 
significance.

Proposed Monitoring and Reporting

    In order to issue an IHA for an activity, section 101(a)(5)(D) of 
the MMPA states that NMFS must set forth ``requirements pertaining to 
the monitoring and reporting of such taking.'' The MMPA implementing 
regulations at 50 CFR 216.104 (a)(13) indicate that requests for 
incidental take authorizations must include the suggested means of 
accomplishing the necessary monitoring and reporting that will result 
in increased knowledge of the species and of the level of taking or 
impacts on populations of marine mammals that are expected to be 
present in the proposed action area.
    Any monitoring requirement we prescribe should improve our 
understanding of one or more of the following:
     Occurrence of marine mammal species in action area (e.g., 
presence, abundance, distribution, density).
     Nature, scope, or context of likely marine mammal exposure 
to potential stressors/impacts (individual or cumulative, acute or 
chronic), through better understanding of: (1) Action or environment 
(e.g., source characterization, propagation, ambient noise); (2) 
Affected species (e.g., life history, dive patterns); (3) Co-occurrence 
of marine mammal species with the action; or (4) Biological or 
behavioral context of exposure (e.g., age, calving or feeding areas).
     Individual responses to acute stressors, or impacts of 
chronic exposures (behavioral or physiological).
     How anticipated responses to stressors impact either: (1) 
Long-term fitness and survival of an individual; or (2) Population, 
species, or stock.
     Effects on marine mammal habitat and resultant impacts to 
marine mammals.
     Mitigation and monitoring effectiveness.
    WETA's proposed monitoring and reporting is also described in their 
Marine Mammal Monitoring Plan, on the Internet at www.nmfs.noaa.gov/pr/permits/incidental/construction.htm.

Visual Marine Mammal Observations

    WETA will collect sighting data and behavioral responses to 
construction for marine mammal species observed in the region of 
activity during the period of activity. All observers (MMOs) will be 
trained in marine mammal identification and behaviors and are required 
to have no other construction-related tasks while conducting 
monitoring. WETA will monitor the shutdown zone and disturbance zone 
before, during, and after pile driving, with observers located at the 
best practicable vantage points. Based on our requirements, WETA would 
implement the following procedures for pile driving:
     MMOs would be located at the best vantage point(s) in 
order to properly see the entire shutdown zone and as much of the 
disturbance zone as possible.
     During all observation periods, observers will use 
binoculars and the naked eye to search continuously for marine mammals.
     If the shutdown zones are obscured by fog or poor lighting 
conditions, pile driving at that location will not be initiated until 
that zone is visible. Should such conditions arise while impact driving 
is underway, the activity would be halted.
     The shutdown and disturbance zones around the pile will be 
monitored for the presence of marine mammals before, during, and after 
any pile driving or removal activity.
    Individuals implementing the monitoring protocol will assess its 
effectiveness using an adaptive approach. The monitoring biologists 
will use their best professional judgment throughout implementation and 
seek improvements to these methods when deemed appropriate. Any 
modifications to protocol will be coordinated between NMFS and WETA.

Data Collection

    We require that observers use approved data forms. Among other 
pieces of information, WETA will record detailed information about any 
implementation of shutdowns, including the distance of animals to the 
pile and description of specific actions that ensued and resulting 
behavior of the animal, if any. In addition, WETA will attempt to 
distinguish between the number of individual animals taken and the 
number of incidences of take. We require that, at a minimum, the 
following information be collected on the sighting forms:
     Date and time that monitored activity begins or ends;
     Construction activities occurring during each observation 
period;
     Weather parameters (e.g., percent cover, visibility);
     Water conditions (e.g., sea state, tide state);
     Species, numbers, and, if possible, sex and age class of 
marine mammals;
     Description of any observable marine mammal behavior 
patterns, including bearing and direction of travel, and if possible, 
the correlation to SPLs;
     Distance from pile driving activities to marine mammals 
and distance from the marine mammals to the observation point;
     Description of implementation of mitigation measures 
(e.g., shutdown or delay);
     Locations of all marine mammal observations; and
     Other human activity in the area.

Reporting

    A draft report would be submitted to NMFS within 90 days of the 
completion of marine mammal monitoring, or sixty days prior to the 
requested date of issuance of any future IHA for projects at the same 
location, whichever comes first. The report will include marine mammal 
observations pre-activity, during-activity, and post-activity during 
pile driving days, and will also provide descriptions of any behavioral 
responses to construction activities by marine mammals and a complete 
description of all mitigation shutdowns and the results of those 
actions and an extrapolated total take estimate based on the number of 
marine mammals observed during the course of construction. A final 
report must be submitted within thirty days following resolution of 
comments on the draft report.

Estimated Take by Incidental Harassment

    Except with respect to certain activities not pertinent here, 
section 3(18) of the MMPA defines ``harassment'' as: ``. . . any act of 
pursuit, torment, or annoyance which (i) has the potential to injure a 
marine mammal or marine mammal stock in the wild [Level A harassment]; 
or (ii) has the potential to disturb a marine mammal or marine mammal 
stock in the wild by causing disruption of behavioral patterns, 
including, but not limited to, migration, breathing, nursing, breeding, 
feeding, or sheltering [Level B harassment].''
    All anticipated takes would be by Level B harassment resulting from

[[Page 33234]]

vibratory and impact pile driving and involving temporary changes in 
behavior. The proposed mitigation and monitoring measures are expected 
to minimize the possibility of injurious or lethal takes such that take 
by Level A harassment, serious injury, or mortality is considered 
discountable. However, it is unlikely that injurious or lethal takes 
would occur even in the absence of the planned mitigation and 
monitoring measures.
    Given the many uncertainties in predicting the quantity and types 
of impacts of sound on marine mammals, it is common practice to 
estimate how many animals are likely to be present within a particular 
distance of a given activity, or exposed to a particular level of 
sound. In practice, depending on the amount of information available to 
characterize daily and seasonal movement and distribution of affected 
marine mammals, it can be difficult to distinguish between the number 
of individuals harassed and the instances of harassment and, when 
duration of the activity is considered, it can result in a take 
estimate that overestimates the number of individuals harassed. In 
particular, for stationary activities, it is more likely that some 
smaller number of individuals may accrue a number of incidences of 
harassment per individual than for each incidence to accrue to a new 
individual, especially if those individuals display some degree of 
residency or site fidelity and the impetus to use the site (e.g., 
because of foraging opportunities) is stronger than the deterrence 
presented by the harassing activity.
    The area where the ferry terminal is located is not considered 
important habitat for marine mammals, as it is a highly industrial area 
with high levels of vessel traffic and background noise. While there 
are harbor seal haul outs within two miles of the construction activity 
at Yerba Buena Island, and a California sea lion haul out approximately 
1.5 miles away at pier 39, behavioral disturbances that could result 
from anthropogenic sound associated with these activities are expected 
to affect only a relatively small number of individual marine mammals 
that may venture near the ferry terminal, although those effects could 
be recurring over the life of the project if the same individuals 
remain in the project vicinity. WETA has requested authorization for 
the incidental taking of small numbers of harbor seals, Northern 
elephant seals, Norther fur seals, California sea lions, harbor 
porpoise, bottlenose dolphin, and gray whales near the San Francisco 
Ferry Terminal that may result from pile driving during construction 
activities associated with the project described previously in this 
document.
    In order to estimate the potential instances of take that may occur 
incidental to the specified activity, we must first estimate the extent 
of the sound field that may be produced by the activity and then 
consider in combination with information about marine mammal density or 
abundance in the project area. We first provide information on 
applicable sound thresholds for determining effects to marine mammals 
before describing the information used in estimating the sound fields, 
the available marine mammal density or abundance information, and the 
method of estimating potential instances of take.

Sound Thresholds

    We use generic sound exposure thresholds to determine when an 
activity that produces sound might result in impacts to a marine mammal 
such that a take by harassment might occur. These thresholds (Table 4) 
are used to estimate when harassment may occur (i.e., when an animal is 
exposed to levels equal to or exceeding the relevant criterion) in 
specific contexts; however, useful contextual information that may 
inform our assessment of effects is typically lacking and we consider 
these thresholds as step functions. NMFS is working to revise these 
acoustic guidelines; for more information on that process, please visit 
www.nmfs.noaa.gov/pr/acoustics/guidelines.htm.

               Table 4--Current Acoustic Exposure Criteria
------------------------------------------------------------------------
           Criterion                Definition           Threshold
------------------------------------------------------------------------
Level A harassment              Injury (PTS--any   180 dB (cetaceans)/
 (underwater).                   level above that   190 dB (pinnipeds)
                                 which is known     (rms).
                                 to cause TTS).
Level B harassment              Behavioral         160 dB (impulsive
 (underwater).                   disruption.        source)/120 dB
                                                    (continuous source)
                                                    (rms).
Level B harassment (airborne).  Behavioral         90 dB (harbor seals)/
                                 disruption.        100 dB (other
                                                    pinnipeds)
                                                    (unweighted).
------------------------------------------------------------------------

Distance to Sound Thresholds

    Underwater Sound Propagation Formula--Pile driving generates 
underwater noise that can potentially result in disturbance to marine 
mammals in the project area. Transmission loss (TL) is the decrease in 
acoustic intensity as an acoustic pressure wave propagates out from a 
source. TL parameters vary with frequency, temperature, sea conditions, 
current, source and receiver depth, water depth, water chemistry, and 
bottom composition and topography. The general formula for underwater 
TL is:

TL = B * log10(R1/R2), where
R1 = the distance of the modeled SPL from the driven 
pile, and
R2 = the distance from the driven pile of the initial 
measurement.

This formula neglects loss due to scattering and absorption, which is 
assumed to be zero here. The degree to which underwater sound 
propagates away from a sound source is dependent on a variety of 
factors, most notably the water bathymetry and presence or absence of 
reflective or absorptive conditions including in-water structures and 
sediments. Spherical spreading occurs in a perfectly unobstructed 
(free-field) environment not limited by depth or water surface, 
resulting in a 6 dB reduction in sound level for each doubling of 
distance from the source (20*log[range]). Cylindrical spreading occurs 
in an environment in which sound propagation is bounded by the water 
surface and sea bottom, resulting in a reduction of 3 dB in sound level 
for each doubling of distance from the source (10*log[range]). A 
practical spreading value of 15 is often used under conditions, such as 
at the San Francisco Ferry Terminal, where water increases with depth 
as the receiver moves away from the shoreline, resulting in an expected 
propagation environment that would lie between spherical and 
cylindrical spreading loss conditions. Practical spreading loss (4.5 dB 
reduction in sound level for each doubling of distance) is assumed 
here.
    Underwater Sound--The intensity of pile driving sounds is greatly 
influenced by factors such as the type of piles, hammers, and the 
physical environment in which the activity takes place. A number of 
studies, primarily on the west coast, have measured sound produced 
during underwater pile driving projects. However, these data

[[Page 33235]]

are largely for impact driving of steel pipe piles and concrete piles 
as well as vibratory driving of steel pipe piles.
    In order to determine reasonable SPLs and their associated effects 
on marine mammals that are likely to result from vibratory or impact 
pile driving at the ferry terminal, we considered existing measurements 
from similar physical environments (e.g. estuarine areas of soft 
substrate where water depths are less than 16 feet).
    For 24- and 36-inch steel piles, projects include the driving of 
similarly sized piles at the Alameda Bay Ship and Yacht project; the 
Rodeo Dock Repair project; and the Amorco Wharf Repair project (Table 
5). During impact pile-driving associated with these projects, measured 
sound levels averaged about 193 dB rms at 10m for 36-inch piles, and 
190 dB rms at 10m for 24-inch piles (Caltrans, 2012). Bubble curtains 
will be used during the installation of these piles, which is expected 
to reduce noise levels by about 10 dB rms (Caltrans, 2015a). Impact 
driving of these piles would produce noise levels above the Level A 190 
dB threshold for pinnipeds over a distance of 11 feet (4 meters) for 
36-inch piles and over a distance of 7 feet (2 meters) for 24-inch 
piles assuming practical spreading. Impact driving of steel piles would 
exceed the Level A 180 dB threshold for cetaceans over a distance of 52 
feet (16 meters) for 36-inch piles, and 33 feet (or 10 meters) for 24-
inch piles. It is estimated that an average of four of these piles 
would be installed per day.
    Projects conducted under similar circumstances with similar piles 
were reviewed to approximate the noise effects of the 14-inch wood 
piles. The best match for estimated noise levels is from the impact 
driving of timber piles at the Port of Benicia (Table 5). Noise levels 
produced during this installation were an average of 170 dB peak, and 
158 dB rms at 33 feet (10 meters) from the pile (Caltrans, 2015a). It 
is estimated that an average of four of these piles would be installed 
per day. Based on the above sound levels, installation of the 14-inch 
plastic-coated wood piles would not produce rms values above the Level 
A or Level B thresholds.
    The best fit data for 24-inch-diameter steel shell piles comes from 
projects completed in Shasta County, California, and the Stockton 
Marina, Stockton, California (Table 5). For these projects, the typical 
noise levels for pile-driving events were 175 dB peak, and 163 dB rms 
at 33 feet (10 meters) (Caltrans, 2012).
    A review of available acoustic data for pile driving indicates that 
Test Pile Program at Naval Base Kitsap at Bangor, Washington 
(Illingsworth and Rodkin, 2013) provides the best match data for 
vibratory installation of 36-inch piles (Table 5). For 36-inch-diameter 
piles driven by the Navy, the average level for all pile-driving events 
was 159 dB rms at 33 feet (10 meters). There was a considerable range 
in the rms levels measured across a pile-driving event; with measured 
values from 147 to 169 dB rms, the higher value is used in this 
analysis. It is estimated that an average of four of these piles would 
be extracted per day of pile driving during the proposed project. Based 
on the above sound levels, vibratory installation of the 24- and 36-
inch steel pipe piles would produce rms values above the Level A and 
Level B thresholds (Table 6).
    It is estimated that an average of four 14-inch polyurethane-coated 
wood piles would be installed per day of pile driving. The best match 
for estimated noise levels for vibratory driving of these piles is from 
the Hable River in Hampshire, England, where wooden piles were 
installed with this method (Table 5). Rms noise levels produced during 
this installation were on average 142 dB rms at 33 feet (10 meters) 
from the pile (Nedwell et al., 2005). Based on these measure levels, 
vibratory installation of the 14-inch polyurethane- coated wood-fender 
piles would not produce noise levels above the Level A 190 or 180 dB 
rms thresholds; however, the 120 dB RMS Level B threshold would be 
exceeded over a radius of 293 meters assuming practical spreading.
    Approximately 350 wood and concrete piles, 12 to 18 inches in 
diameter, would be removed using a vibratory pile-driver. With the 
vibratory hammer activated, an upward force would be applied to the 
pile to remove it from the sediment. On average, 12 of these piles 
would be extracted per work day. Extraction time needed for each pile 
may vary greatly, but could require approximately 400 seconds 
(approximately 7 minutes) from an APE 400B King Kong or similar driver. 
The most applicable noise values for wooden pile removal from which to 
base estimates for the terminal expansion project are derived from 
measurements taken at the Port Townsend dolphin pile removal in the 
State of Washington (Table 5). During vibratory pile extraction 
associated with this project, measured peak noise levels were 
approximately 164 dB at 16 m, and the rms was approximately 150 dB 
(WSDOT, 2011). Applicable sound values for the removal of concrete 
piles could not be located, but they are expected to be similar to the 
levels produced by wooden piles described above, because they are 
similarly sized, nonmetallic, and will be removed using the same 
methods. Based on the above noise levels, vibratory extraction of the 
timber and concrete piles would not produce noise levels above the 
Level A 190 dB or 180 dB thresholds. The radius over which the Level B 
120 dB rms threshold could be exceeded is approximately 1,920 feet (585 
meters) assuming practical spreading.

       Table 5--Underwater SPLs From Monitored Construction Activities Using Vibratory and Impact Hammers
----------------------------------------------------------------------------------------------------------------
      Project and location        Pile size and type  Hammer type/method    Water depth (m)      Measured SPLs
----------------------------------------------------------------------------------------------------------------
the Alameda Bay Ship and Yacht    40-in Steel pipe..  Impact driving....  13................  195 RMS at 10 m.
 project \1\.
the Rodeo Dock Repair project     24- in steel pile.  Impact driving....  5.................  189 RMS at 10 m.
 \1\.
the Amorco Wharf Repair project   24- in steel pile.  Impact driving....  >12...............  190 RMS at 10 m.
 \1\.
Port of Benicia \2\.............  Timber pile.......  n/a...............  11................  170 dB RMS at 10
                                                                                               m.
Shasta County, California \1\...  24-inch steel pipe  Vibratory driving.  >2................  157, 159 RMS at 10
                                   piles.                                                      m.
the Stockton Marina, Stockton,    20-inch- steel      Vibratory driving.  3.................  169, 156 RMS at 10
 California \1\.                   shell piles.                                                m.
Test Pile Program at Naval Base   36-inch TTP.......  Vibratory driving.  n/a...............  159 dB RMS at 10
 Kitsap at Bangor, WA \3\.                                                                     m.
Hable River in Hampshire,         14-inch             Vibratory driving.  n/a...............  142 dB RMS at 10
 England \4\.                      polyurethane-                                               m.
                                   coated wood piles.
Port Townsend dolphin pile        Dolphin pile......  Vibratory           5.................  150 RMS at 16 m.
 removal in the State of                               extraction.
 Washington \5\.
----------------------------------------------------------------------------------------------------------------
\1\ Caltrans, 2012
\2\ Caltrans, 2015a
\3\ Illingsworth and Rodkin, 2013
\4\ Nedwell, 2015
\5\ WSDOT, 2011


[[Page 33236]]

    All calculated distances to, and the total area encompassed by, the 
marine mammal sound thresholds are provided in Table 6. No 
physiological responses are expected from pile-driving operations 
occurring during project construction. Vibratory pile extraction and 
driving does not generate high-peak sound-pressure levels commonly 
associated with physiological damage. Impact driving can produce noise 
levels in excess of the Level A thresholds, but only within 50 feet (15 
meters) of impact-driving of 36-inch piles. The shutdown zone will be 
equivalent to the area over which Level A harassment may occur, 
including the 180 dB re 1 [mu]Pa (cetaceans) and 190 dB re 1 [mu]Pa 
(pinnipeds) isopleths (Table 6); however, a minimum 10 m shutdown zone 
will be applied to the these zones as a precautionary measure intended 
to prevent the already unlikely possibility of physical interaction 
with construction equipment and to further reduce any possibility of 
acoustic injury. The disturbance zones will be equivalent to the area 
over which Level B harassment may occur, including160 dB re 1 [mu]Pa 
(impact pile driving) and 120 dB re 1 [mu]Pa (vibratory pile driving) 
isopleths (Table 6).

             Table 6--Distances to Relevant Underwater Sound Thresholds and Areas of Ensonification
----------------------------------------------------------------------------------------------------------------
                                   Source levels             Distance to threshold (m)
 Project element requiring pile    at 10 meters  ------------------------------------------------ Area for level
          installation           ----------------                                 160/120 dB RMS    B threshold
                                        RMS       190 dB RMS \1\  180 dB RMS \1\        \2\           (km\2\)
----------------------------------------------------------------------------------------------------------------
                                     South Basin Pile Demolition and Removal
----------------------------------------------------------------------------------------------------------------
18-Inch Wood Piles--Vibratory                150               0             < 1           1,000            1.27
 Driver.........................
18-Inch Concrete Piles--                     150               0             < 1           1,000            1.27
 Vibratory Driver...............
36-Inch Steel Piles--Vibratory               170             < 1               2          18,478           86.52
 Driver.........................
----------------------------------------------------------------------------------------------------------------
           Embarcadero Plaza and East Bayside Promenade and Gates E, F, and G Dolphin and Guide Piles
----------------------------------------------------------------------------------------------------------------
36-Inch Steel Piles--Vibratory               169             < 1               2          18,478           86.52
 Driver.........................
36-Inch Steel Piles--Impact                  198               4              16             341            0.18
 Driver (BCA)3..................
24-Inch Steel Piles--Vibratory               163               0               1           7,356           38.07
 Driver.........................
24-Inch Steel Piles--Impact                  193               2              10             215            0.09
 Driver (BCA)...................
----------------------------------------------------------------------------------------------------------------
                                                  Fender Piles
----------------------------------------------------------------------------------------------------------------
14-Inch Wood Piles--Vibratory                142               0               0             293            0.14
 Driver.........................
14-Inch Wood Piles--Impact                   158               0               0               7               0
 Driver.........................
----------------------------------------------------------------------------------------------------------------
\1\ For underwater noise, the Level A harassment threshold for cetaceans is 180 dB and 190 dB for pinnipeds.
\2\ For underwater noise, the Level B harassment (disturbance) threshold is 160 dB for impulsive noise and
  typical ambient levels (120 dB) for continuous noise.
BCA Bubble curtain attenuation will be used during impact driving of steel piles.
dB decibels.
RMS root mean square.

Marine Mammal Densities

    At-sea densities for marine mammal species have not be determined 
in San Francisco Bay; therefore, estimates here are determined by using 
observational data taken during marine mammal monitoring associated 
with the Richmond-San Rafael Bridge retrofit project, the San 
Francisco-Oakland Bay Bridge (SFOBB), which has been ongoing for the 
past 15 years, and anecdotal observational reports from local entities. 
It is not currently possible to identify all observed individuals to 
stock.

Description of Take Calculation

    All estimates are conservative and include the following 
assumptions:
     All pilings installed at each site would have an 
underwater noise disturbance equal to the piling that causes the 
greatest noise disturbance (i.e., the piling farthest from shore) 
installed with the method that has the largest ZOI. The largest 
underwater disturbance ZOI would be produced by vibratory driving steel 
piles. The ZOIs for each threshold are not spherical and are truncated 
by land masses on either side of the channel which would dissipate 
sound pressure waves.
     Exposures were based on estimated total of 106 work days. 
Each activity ranges in amount of days needed to be completed (Table 
1). Note that impact driving is likely to occur only on days when 
vibratory driving occurs.
     In absence of site specific underwater acoustic 
propagation modeling, the practical spreading loss model was used to 
determine the ZOI.
     All marine mammal individuals potentially available are 
assumed to be present within the relevant area, and thus incidentally 
taken;
     An individual can only be taken once during a 24-h period; 
and,
     Exposures to sound levels at or above the relevant 
thresholds equate to take, as defined by the MMPA.
    The estimation of marine mammal takes typically uses the following 
calculation:
    For harbor seals and California sea lions: Level B exposure 
estimate = D (density) * Area of ensonification) * Number of days of 
noise generating activities.
    For all other marine mammal species: Level B exposure estimate = N 
(number of animals) in the area * Number of days of noise generating 
activities.
    To account for the increase in California sea lion density due to 
El Ni[ntilde]o, the daily take estimated from the observed density has 
been increased by a factor of 10 for each day that pile driving occurs.
    There are a number of reasons why estimates of potential instances 
of take may be overestimates of the number of individuals taken, 
assuming that available density or abundance estimates and estimated 
ZOI areas are accurate. We assume, in the absence of information 
supporting a more refined conclusion, that the output of the 
calculation represents the number of individuals that may be taken by 
the specified activity. In fact, in the context of stationary 
activities such as pile driving and in areas where resident animals may 
be present, this number

[[Page 33237]]

represents the number of instances of take that may accrue to a smaller 
number of individuals, with some number of animals being exposed more 
than once per individual. While pile driving can occur any day 
throughout the in-water work window, and the analysis is conducted on a 
per day basis, only a fraction of that time (typically a matter of 
hours on any given day) is actually spent pile driving. The potential 
effectiveness of mitigation measures in reducing the number of takes is 
typically not quantified in the take estimation process. For these 
reasons, these take estimates may be conservative, especially if each 
take is considered a separate individual animal, and especially for 
pinnipeds.
    The quantitative exercise described above indicates that no 
instances of Level A harassment would be expected, independent of the 
implementation of required mitigation measures. See Table 7 for total 
estimated instances of take.

                                                  Table 7--Calculations for Incidental Take Estimation
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                   Estimated take by level B harassment (take per day/total)
                                                           Number of -----------------------------------------------------------------------------------
            Pile type                 Pile-driver type      driving                            Northern     Harbor                 Northern   Bottlenose
                                                             days       Harbor      CA Sea     elephant    porpoise   Gray Whale   fur seal     dolphin
                                                                         seal      lion \1\    seal \2\       \2\         \2\         \2\         \2\
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                    2016 Work Season
--------------------------------------------------------------------------------------------------------------------------------------------------------
Wood/concrete pile removal.......  Vibratory............          30        1/30      10/300          NA          NA          NA          NA          NA
36-inch dolphin pile removal.....  Vibratory............           1       27/26     110/110          NA          NA          NA          NA          NA
Embarcadero Plaza................  Vibratory \3\........          65    26/1,690   110/7,150          NA          NA          NA          NA          NA
36-inch steel piles OR...........
24-inch steel piles..............  Vibratory \3\........          65      12/780    50/3,250          NA          NA          NA          NA          NA
14-inch wood pile................  Vibratory \3\........          10        1/10      10/100          NA          NA          NA          NA          NA
                                  ----------------------------------------------------------------------------------------------------------------------
    Project Total (2016) \3\.....  .....................         106       1,756       7,660          14           6           2          10          30
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                    2017 Work Season
--------------------------------------------------------------------------------------------------------------------------------------------------------
Gate F and G Guide Piles (36-inch  Vibratory \3\........          12        1/12        4/48          NA          NA          NA          NA          NA
 steel).
Gate E Guide Pile Removal (36-     Vibratory............           6         1/6        4/24          NA          NA          NA          NA          NA
 inch steel).
Gate E Guide Pile Installation     Vibratory \3\........           6         1/6        4/24          NA          NA          NA          NA          NA
 (36-inch steel).
                                  ----------------------------------------------------------------------------------------------------------------------
    Project Total (2017).........  .....................          24     648 \4\   2,640 \4\           4           6           2          10          30
--------------------------------------------------------------------------------------------------------------------------------------------------------
\1\ 1 To account for potential El Ni[ntilde]o conditions, take calculated from at-sea densities for California sea lion has been increased by a factor
  of 10.
\2\ Take is not calculated by activity type for these species with a low potential to occur, only a yearly total is given.
\2\ Piles of this type may also be installed with an impact hammer, which would reduce the estimated take.
\3\ This total assumes that 36-inch steel piles are used for the Embarcadero Plaza.

Description of Marine Mammals in the Area of the Specified Activity

Harbor Seals

    Monitoring of marine mammals in the vicinity of the SFOBB has been 
ongoing for 15 years; from those data, Caltrans has produced at-sea 
density estimates for Pacific harbor seal of 0.78 animals per square 
mile (0.3 animals per square kilometer) for the summer season 
(Caltrans, 2015b). Using this density, the potential average daily take 
for the areas over which the Level B harassment thresholds may be 
exceeded are estimated in Table 8.

                                    Table 8--Take Calculation for Harbor Seal
----------------------------------------------------------------------------------------------------------------
             Activity                     Pile type               Density          Area (km\2\)    Take estimate
----------------------------------------------------------------------------------------------------------------
Vibratory driving.................  24-in steel pile.....  0.78 (0.3 animal/               38.09             780
                                                            km\2\).
Vibratory driving and extraction..  36-in steel pile.....  0.78 (0.3 animal/               86.52       1,690; 26
                                                            km\2\).
Vibratory extraction..............  Wood and concrete      0.78 (0.3 animal/                1.27              30
                                     piles.                 km\2\).
Vibratory driving.................  Wood piles...........  0.78 (0.3 animal/                0.14              10
                                                            km\2\).
----------------------------------------------------------------------------------------------------------------

    A total of 1,756 harbor seal takes are estimated for 2016 (Table 
7).

California sea lion

    Monitoring of marine mammals in the vicinity of the SFOBB has been 
ongoing for 15 years; from those data, Caltrans has produced at-sea 
density estimates for California sea lion of 0.31 animals per square 
mile (0.12 animal per square kilometer) for the summer season 
(Caltrans, 2015b). Using this density, the potential average daily take 
for the areas over which the Level B harassment thresholds may be 
exceeded (Table 10) is estimated in Table 9.

                                Table 9--Take Calculation for California Sea Lion
----------------------------------------------------------------------------------------------------------------
             Activity                     Pile type               Density          Area (km\2\)    Take estimate
----------------------------------------------------------------------------------------------------------------
Vibratory driving and extraction..  24-in steel pile.....  0.31 (0.12 animal/              38.09         * 3,250
                                                            km\2\).

[[Page 33238]]

 
Vibratory driving and extraction..  36-in steel pile.....  0.31 (0.12 animal/              86.52    * 7,150; 110
                                                            km\2\).
Vibratory extraction..............  Wood and concrete      0.31 (0.12 animal/               1.27           * 300
                                     piles.                 km\2\).
Vibratory driving.................  Wood piles...........  0.31 (0.12 animal/               0.14           * 100
                                                            km\2\).
----------------------------------------------------------------------------------------------------------------
* All California sea lion estimates were multiplied by 10 to account for the increased occurrence of this
  species due to El Ni[ntilde]o.

    All California sea lion estimates were multiplied by 10 to account 
for the increased occurrence of this species due to El Ni[ntilde]o. A 
total of 7,660 California sea lion takes is estimated for 2016 (Table 
7).

Northern Elephant Seal

    Monitoring of marine mammals in the vicinity of the SFOBB has been 
ongoing for 15 years; from those data, Caltrans has produced an 
estimated at-sea density for northern elephant seal of 0.16 animal per 
square mile (0.03 animal per square kilometer) (Caltrans, 2015b). Most 
sightings of northern elephant seal in San Francisco Bay occur in 
spring or early summer, and are less likely to occur during the periods 
of in-water work for this project (June/July through November). As a 
result, densities during pile driving for the proposed action would be 
much lower. Therefore, we estimate that it is possible that a lone 
northern elephant seal may enter the Level B harassment area once per 
week during pile driving, for a total of 14 takes in 2016 (Table 7).

Northern Fur Seal

    During the breeding season, the majority of the worldwide 
population is found on the Pribilof Islands in the southern Bering Sea, 
with the remaining animals spread throughout the North Pacific Ocean. 
On the coast of California, small breeding colonies are present at San 
Miguel Island off southern California, and the Farallon Islands off 
central California (Caretta et al 2014). Northern fur seal are a 
pelagic species and are rarely seen near the shore away from breeding 
areas. Juveniles of this species occasionally strand in San Francisco 
Bay, particularly during El Ni[ntilde]o events, for example, during the 
2006 El Ni[ntilde]o event, 33 fur seals were admitted to the Marine 
Mammal Center (TMMC, 2016). Some of these stranded animals were 
collected from shorelines in San Francisco Bay. Due to the recent El 
Ni[ntilde]o event, Northern fur seals are being observed in San 
Francisco bay more frequently, as well as strandings all along the 
California coast and inside San Francisco Bay; a trend that is expected 
to continue this summer through winter (TMMC, personal communication). 
Because sightings are normally rare; instances recently have been 
observed, but are not common, and based on estimates from local 
observations (TMMC, personal communication), it is estimated that ten 
Norther fur seals will be taken in 2016 (Table 7).

Harbor Porpoise

    In the last six decades, harbor porpoises were observed outside of 
San Francisco Bay. The few harbor porpoises that entered were not 
sighted past central Bay close to the Golden Gate Bridge. In recent 
years, however, there have been increasingly common observations of 
harbor porpoises in central, north, and south San Francisco Bay. 
Porpoise activity inside San Francisco Bay is thought to be related to 
foraging and mating behaviors (Keener, 2011; Duffy, 2015). According to 
observations by the Golden Gate Cetacean Research team as part of their 
multi-year assessment, over 100 porpoises may be seen at one time 
entering San Francisco Bay; and over 600 individual animals are 
documented in a photo-ID database. However, sightings are concentrated 
in the vicinity of the Golden Gate Bridge and Angel Island, north of 
the project area, with lesser numbers sighted south of Alcatraz and 
west of Treasure Island (Keener 2011). Harbor porpoise generally travel 
individually or in small groups of two or three (Sekiguchi, 1995).
    Monitoring of marine mammals in the vicinity of the SFOBB has been 
ongoing for 15 years; from those data, Caltrans has produced an 
estimated at-sea density for harbor porpoise of 0.01 animal per square 
mile (0.004 animal per square kilometer) (Caltrans, 2015b). However, 
this estimate would be an overestimate of what would actually be seen 
in the project area. In order to estimate a more realistic take number, 
we assume it is possible that a small group of individuals (three 
harbor porpoises) may enter the Level B harassment area on as many as 
two days of pile driving, for a total of six harbor porpoise takes per 
year (Table 7).

Gray Whale

    Historically, gray whales were not common in San Francisco Bay. The 
Oceanic Society has tracked gray whale sightings since they began 
returning to San Francisco Bay regularly in the late 1990s. The Oceanic 
Society data show that all age classes of gray whales are entering San 
Francisco Bay, and that they enter as singles or in groups of up to 
five individuals. However, the data do not distinguish between 
sightings of gray whales and number of individual whales (Winning, 
2008). Caltrans Richmond-San Rafael Bridge project monitors recorded 12 
living and two dead gray whales in the surveys performed in 2012. All 
sightings were in either the central or north Bay; and all but two 
sightings occurred during the months of April and May. One gray whale 
was sighted in June, and one in October (the specific years were 
unreported). It is estimated that two to six gray whales enter San 
Francisco Bay in any given year. Because construction activities are 
only occurring during a maximum of 106 days in 2016, it is estimated 
that two gray whales may potentially enter the area during the 
construction period, for a total of 2 gray whale takes in 2016 (Table 
7).

Bottlenose Dolphin

    Since the 1982-83 El Ni[ntilde]o, which increased water 
temperatures off California, bottlenose dolphins have been consistently 
sighted along the central California coast (Caretta et al 2008). The 
northern limit of their regular range is currently the Pacific coast 
off San Francisco and Marin County, and they occasionally enter San 
Francisco Bay, sometimes foraging for fish in Fort Point Cove, just 
east of the Golden Gate Bridge. In the summer of 2015, a lone 
bottlenose dolphin was seen swimming in the Oyster Point area of South 
San Francisco (GGCR, 2016). Members of this stock are transient and 
make movements up and down the coast, and into some estuaries, 
throughout the year. Due to the recent El Ni[ntilde]o event, bottlenose 
dolphins are being observed in San Francisco bay more frequently (TMMC, 
personal communication). Groups with an average group size of five 
animals enter

[[Page 33239]]

the bay and occur near Yerba Buena Island once per week for a two week 
stint and then depart the bay (TMMC, personal communication). Assuming 
groups of five individuals may enter San Francisco Bay approximately 
three times during the construction activities, we estimate 30 takes of 
bottlenose dolphins for 2016 (Table 7).

Analyses and Preliminary Determinations

Negligible Impact Analysis

    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.'' A negligible impact finding is based on the 
lack of likely adverse effects on annual rates of recruitment or 
survival (i.e., population-level effects). An estimate of the number of 
Level B harassment takes alone is not enough information on which to 
base an impact determination. In addition to considering estimates of 
the number of marine mammals that might be ``taken'' through behavioral 
harassment, we consider other factors, such as the likely nature of any 
responses (e.g., intensity, duration), the context of any responses 
(e.g., critical reproductive time or location, migration), as well as 
the number and nature of estimated Level A harassment takes, the number 
of estimated mortalities, and effects on habitat.
    Pile driving activities associated with the ferry terminal 
construction project, as outlined previously, have the potential to 
disturb or displace marine mammals. Specifically, the specified 
activities may result in take, in the form of Level B harassment 
(behavioral disturbance) only, from underwater sounds generated from 
pile driving. Potential takes could occur if individuals of these 
species are present in the ensonified zone when pile driving occurs.
    No injury, serious injury, or mortality is anticipated given the 
nature of the activities and measures designed to minimize the 
possibility of injury to marine mammals. The potential for these 
outcomes is minimized through the construction method and the 
implementation of the planned mitigation measures. Specifically, 
vibratory hammers will be the primary method of installation (impact 
driving is included only as a contingency), and this activity does not 
have the potential to cause injury to marine mammals due to the 
relatively low source levels produced (less than 180 dB) and the lack 
of potentially injurious source characteristics. Impact pile driving 
produces short, sharp pulses with higher peak levels and much sharper 
rise time to reach those peaks. If impact driving is necessary, 
implementation of soft start and shutdown zones significantly reduces 
any possibility of injury. Given sufficient ``notice'' through use of 
soft start (for impact driving), marine mammals are expected to move 
away from a sound source that is annoying prior to it becoming 
potentially injurious. WETA will also employ the use of 12-inch-thick 
wood cushion block on impact hammers, and use a bubble curtain as sound 
attenuation devices. Environmental conditions in San Francisco Ferry 
Terminal mean that marine mammal detection ability by trained observers 
is high, enabling a high rate of success in implementation of shutdowns 
to avoid injury.
    WETA's proposed activities are localized and of relatively short 
duration (a maximum of 106 days for pile driving in the first year). 
The entire project area is limited to the San Francisco ferry terminal 
area and its immediate surroundings. These localized and short-term 
noise exposures may cause short-term behavioral modifications in harbor 
seals, Northern fur seals, Northern elephant seals, California sea 
lions, harbor porpoises, bottlenose dolphins, and gray whales. 
Moreover, the proposed mitigation and monitoring measures are expected 
to reduce the likelihood of injury and behavior exposures. 
Additionally, no important feeding and/or reproductive areas for marine 
mammals are known to be within the ensonified area during the 
construction time frame.
    The project also is not expected to have significant adverse 
effects on affected marine mammals' habitat. The project activities 
would not modify existing marine mammal habitat for a significant 
amount of time. The activities may cause some fish to leave the area of 
disturbance, thus temporarily impacting marine mammals' foraging 
opportunities in a limited portion of the foraging range; but, because 
of the short duration of the activities and the relatively small area 
of the habitat that may be affected, the impacts to marine mammal 
habitat are not expected to cause significant or long-term negative 
consequences.
    Effects on individuals that are taken by Level B harassment, on the 
basis of reports in the literature as well as monitoring from other 
similar activities, will likely be limited to reactions such as 
increased swimming speeds, increased surfacing time, or decreased 
foraging (if such activity were occurring) (e.g., Thorson and Reyff, 
2006; Lerma, 2014). Most likely, individuals will simply move away from 
the sound source and be temporarily displaced from the areas of pile 
driving, although even this reaction has been observed primarily only 
in association with impact pile driving. Repeated exposures of 
individuals to levels of sound that may cause Level B harassment are 
unlikely to result in hearing impairment or to significantly disrupt 
foraging behavior due to the small ensonification area and relatively 
short duration of the project. Thus, even repeated Level B harassment 
of some small subset of the overall stock is unlikely to result in any 
significant realized decrease in fitness for the affected individuals, 
and thus would not result in any adverse impact to the stock as a 
whole.
    In summary, this negligible impact analysis is founded on the 
following factors: (1) the possibility of injury, serious injury, or 
mortality may reasonably be considered discountable; (2) the 
anticipated instances of Level B harassment consist of, at worst, 
temporary modifications in behavior; (3) the presumed efficacy of the 
proposed mitigation measures in reducing the effects of the specified 
activity to the level of least practicable impact, and (4) the lack of 
important areas. In addition, these stocks are not listed under the 
ESA. In combination, we believe that these factors, as well as the 
available body of evidence from other similar activities, demonstrate 
that the potential effects of the specified activity will have only 
short-term effects on individuals. The specified activity is not 
reasonably expected to and is not reasonably likely to adversely affect 
the marine mammal species or stocks through effects on annual rates of 
recruitment or survival, and will therefore not result in population-
level impacts.
    Based on the analysis contained herein of the likely effects of the 
specified activity on marine mammals and their habitat, and taking into 
consideration the implementation of the proposed monitoring and 
mitigation measures, we preliminarily find that the total marine mammal 
take from WETA's ferry terminal construction activities will have a 
negligible impact on the affected marine mammal species or stocks.

Small Numbers Analysis

    Table 10 details the number of instances that animals could be 
exposed to received noise levels that could cause Level B behavioral 
harassment for the

[[Page 33240]]

proposed work at the ferry terminal project site relative to the total 
stock abundance. The numbers of animals authorized to be taken for all 
species would be considered small relative to the relevant stocks or 
populations even if each estimated instance of take occurred to a new 
individual--an extremely unlikely scenario. The total percent of the 
population (if each instance was a separate individual) for which take 
is requested is approximately nine percent for bottlenose dolphins, 
approximately six percent for harbor seals, less than three percent for 
California sea lions, and less than one percent for all other species 
(Table 10). For pinnipeds, especially harbor seals occurring in the 
vicinity of the ferry terminal, there will almost certainly be some 
overlap in individuals present day-to-day, and the number of 
individuals taken is expected to be notably lower. We preliminarily 
find that small numbers of marine mammals will be taken relative to the 
populations of the affected species or stocks.

          Table 10--Estimated Numbers and Percentage of Stock That May Be Exposed to Level B Harassment
----------------------------------------------------------------------------------------------------------------
                                                                     Proposed        Stock(s)      Percentage of
                             Species                                authorized       abundance      total stock
                                                                       takes       estimate \1\         (%)
----------------------------------------------------------------------------------------------------------------
Harbor Seal (Phoca vitulina) California stock...................           1,756          30,968             5.7
California sea lion (Zalophus californianus) U.S. Stock.........           7,660         296,750             2.6
Northern elephant seal (Mirounga anustirostris) California                    14         179,000           .0008
 breeding stock.................................................
Northern fur seal (Callorhinus ursinus) California stock........              10          14,050            .007
Harbor Porpoise (Phocoena phocoena) San Francisco-Russian River                6           9,886            .006
 Stock..........................................................
Gray whale (Eschrichtius robustus) Eastern North Pacific stock..               2          20,990            .001
Bottlenose dolphin (Tursiops truncatus) California coastal stock              30             323             9.3
----------------------------------------------------------------------------------------------------------------
\1\ All stock abundance estimates presented here are from the draft 2015 Pacific Stock Assessment Report.

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, we have determined that the total taking of 
affected species or stocks would not have an unmitigable adverse impact 
on the availability of such species or stocks for taking for 
subsistence purposes.

Endangered Species Act (ESA)

    No marine mammal species listed under the ESA are expected to be 
affected by these activities. Therefore, we have determined that 
section 7 consultation under the ESA is not required.

National Environmental Policy Act (NEPA)

    NMFS is currently conducting an analysis, pursuant to National 
Environmental Policy Act (NEPA), to determine whether or not this 
proposed activity may have a significant effect on the human 
environment. This analysis will be completed prior to the issuance or 
denial of this proposed IHA.

Proposed Authorization

    As a result of these preliminary determinations, we propose to 
authorize the take of marine mammals incidental to WETA's Downtown San 
Francisco Ferry Terminal Expansion Project, South Basin Improvements 
Project, provided the previously mentioned mitigation, monitoring, and 
reporting requirements are incorporated. Specific language from the 
proposed IHA is provided next.
    This section contains a draft of the IHA. The wording contained in 
this section is proposed for inclusion in the IHA (if issued).
    1. This Incidental Harassment Authorization (IHA) is valid for one 
year from the date of issuance.
    2. This IHA is valid only for pile driving activities associated 
with the Downtown San Francisco Ferry Terminal Expansion Project, South 
Basin Improvements Project in San Francisco Bay, CA.
    3. General Conditions.
    (a) A copy of this IHA must be in the possession of WETA, its 
designees, and work crew personnel operating under the authority of 
this IHA.
    (b) The species authorized for taking are summarized in Table 1.
    (c) The taking, by Level B harassment only, is limited to the 
species listed in condition 3(b). See Table 1 for numbers of take 
authorized.

                    Table 1--Authorized Take Numbers
------------------------------------------------------------------------
                                                       Authorized take
                      Species                      ---------------------
                                                     Level A    Level B
------------------------------------------------------------------------
Harbor seal.......................................          0      1,756
California sea lion...............................          0      7,660
Northern elephant seal............................          0         14
Northern fur seal.................................          0         10
Harbor porpoise...................................          0          6
Gray whale........................................          0          2
Bottlenose dolphin................................          0         30
                                                   ---------------------
    Total.........................................          0      9,478
------------------------------------------------------------------------

    (d) The taking by injury (Level A harassment), serious injury, or 
death of the species listed in condition 3(b) of the Authorization or 
any taking of any other species of marine mammal is prohibited and may 
result in the modification, suspension, or revocation of this IHA.
    (e) WETA shall conduct briefings between construction supervisors 
and crews, marine mammal monitoring team, and WETA staff prior to the 
start of all pile driving activity, and when new personnel join the 
work.
    4. Mitigation Measures.
    The holder of this Authorization is required to implement the 
following mitigation measures:
    (a) For all pile driving, WETA shall implement a minimum shutdown 
zone of 10 m radius around the pile. If a marine mammal comes within or 
approaches the shutdown zone, such operations shall cease.
    (b) For in-water heavy machinery work other than pile driving 
(e.g., standard barges, tug boats, barge-mounted excavators, or 
clamshell equipment used to place or remove material), if a marine 
mammal comes within 10 meters, operations shall cease and vessels shall 
reduce speed to the minimum level required to maintain steerage and 
safe working conditions.
    (c) WETA shall establish monitoring locations as described below. 
Please also refer to the Marine Mammal Monitoring Plan (see 
www.nmfs.noaa.gov/pr/permits/incidental/construction.htm).
    i. For all pile driving activities, a minimum of two observers 
shall be deployed, with one positioned to achieve optimal monitoring of 
the shutdown zone and the second positioned to achieve optimal 
monitoring of surrounding waters of the ferry terminal and portions of 
San Francisco Bay. If practicable, the second

[[Page 33241]]

observer should be deployed to an elevated position with clear sight 
lines to the ferry terminal.
    ii. These observers shall record all observations of marine 
mammals, regardless of distance from the pile being driven, as well as 
behavior and potential behavioral reactions of the animals. 
Observations within the ferry terminal shall be distinguished from 
those in the nearshore waters of San Francisco Bay.
    iii. All observers shall be equipped for communication of marine 
mammal observations amongst themselves and to other relevant personnel 
(e.g., those necessary to effect activity delay or shutdown).
    (c) Monitoring shall take place from fifteen minutes prior to 
initiation of pile driving activity through thirty minutes post-
completion of pile driving activity. In the event of a delay or 
shutdown of activity resulting from marine mammals in the shutdown 
zone, animals shall be allowed to remain in the shutdown zone (i.e., 
must leave of their own volition) and their behavior shall be monitored 
and documented. Monitoring shall occur throughout the time required to 
drive a pile. The shutdown zone must be determined to be clear during 
periods of good visibility (i.e., the entire shutdown zone and 
surrounding waters must be visible to the naked eye).
    (d) If a marine mammal approaches or enters the shutdown zone, all 
pile driving activities at that location shall be halted. If pile 
driving is halted or delayed due to the presence of a marine mammal, 
the activity may not commence or resume until either the animal has 
voluntarily left and been visually confirmed beyond the shutdown zone 
or fifteen minutes have passed without re-detection of the animal.
    (e) Using delay and shut-down procedures, if a species for which 
authorization has not been granted (including but not limited to 
Guadalupe fur seals and humpback whales) or if a species for which 
authorization has been granted but the authorized takes are met, 
approaches or is observed within the Level B harassment zone, 
activities will shut down immediately and not restart until the animals 
have been confirmed to have left the area.
    (f) Monitoring shall be conducted by qualified observers, as 
described in the Monitoring Plan. Trained observers shall be placed 
from the best vantage point(s) practicable to monitor for marine 
mammals and implement shutdown or delay procedures when applicable 
through communication with the equipment operator. Observer training 
must be provided prior to project start and in accordance with the 
monitoring plan, and shall include instruction on species 
identification (sufficient to distinguish the species listed in 3(b)), 
description and categorization of observed behaviors and interpretation 
of behaviors that may be construed as being reactions to the specified 
activity, proper completion of data forms, and other basic components 
of biological monitoring, including tracking of observed animals or 
groups of animals such that repeat sound exposures may be attributed to 
individuals (to the extent possible).
    (g) WETA shall use soft start techniques recommended by NMFS for 
impact pile driving. Soft start requires contractors to provide an 
initial set of strikes at reduced energy, followed by a thirty-second 
waiting period, then two subsequent reduced energy strike sets. Soft 
start shall be implemented at the start of each day's impact pile 
driving and at any time following cessation of impact pile driving for 
a period of thirty minutes or longer.
    (h) Sound attenuation devices--Approved sound attenuation devices 
(e.g. bubble curtain, pile cushion) shall be used during impact pile 
driving operations. WETA shall implement the necessary contractual 
requirements to ensure that such devices are capable of achieving 
optimal performance, and that deployment of the device is implemented 
properly such that no reduction in performance may be attributable to 
faulty deployment.
    (i) Pile driving shall only be conducted during daylight hours.
    5. Monitoring.
    The holder of this Authorization is required to conduct marine 
mammal monitoring during pile driving activity. Marine mammal 
monitoring and reporting shall be conducted in accordance with the 
Monitoring Plan.
    (a) WETA shall collect sighting data and behavioral responses to 
pile driving for marine mammal species observed in the region of 
activity during the period of activity. All observers shall be trained 
in marine mammal identification and behaviors, and shall have no other 
construction-related tasks while conducting monitoring.
    (b) For all marine mammal monitoring, the information shall be 
recorded as described in the Monitoring Plan.
    6. Reporting.
    The holder of this Authorization is required to:
    (a) Submit a draft report on all monitoring conducted under the IHA 
within ninety days of the completion of marine mammal monitoring, or 
sixty days prior to the issuance of any subsequent IHA for projects at 
the San Francisco Ferry Terminal, whichever comes first. A final report 
shall be prepared and submitted within thirty days following resolution 
of comments on the draft report from NMFS. This report must contain the 
informational elements described in the Monitoring Plan, at minimum 
(see www.nmfs.noaa.gov/pr/permits/incidental/construction.htm), and 
shall also include:
    i. Detailed information about any implementation of shutdowns, 
including the distance of animals to the pile and description of 
specific actions that ensued and resulting behavior of the animal, if 
any.
    ii. Description of attempts to distinguish between the number of 
individual animals taken and the number of incidents of take, such as 
ability to track groups or individuals.
    iii. An estimated total take estimate extrapolated from the number 
of marine mammals observed during the course of construction 
activities, if necessary.
    (b) Reporting injured or dead marine mammals:
    i. In the unanticipated event that the specified activity clearly 
causes the take of a marine mammal in a manner prohibited by this IHA, 
such as an injury (Level A harassment), serious injury, or mortality, 
WETA shall immediately cease the specified activities and report the 
incident to the Office of Protected Resources, NMFS, and the Southwest 
Regional Stranding Coordinator, NMFS. The report must include the 
following information:
    A. Time and date of the incident;
    B. Description of the incident;
    C. Environmental conditions (e.g., wind speed and direction, 
Beaufort sea state, cloud cover, and visibility);
    D. Description of all marine mammal observations in the 24 hours 
preceding the incident;
    E. Species identification or description of the animal(s) involved;
    F. Fate of the animal(s); and
    G. Photographs or video footage of the animal(s).
    Activities shall not resume until NMFS is able to review the 
circumstances of the prohibited take. NMFS will work with WETA to 
determine what measures are necessary to minimize the likelihood of 
further prohibited take and ensure MMPA compliance. WETA may not resume 
their activities until notified by NMFS.
    ii. In the event that WETA discovers an injured or dead marine 
mammal, and the lead observer determines that the cause of the injury 
or death is unknown and the death is relatively recent (e.g., in less 
than a moderate state of

[[Page 33242]]

decomposition), WETA shall immediately report the incident to the 
Office of Protected Resources, NMFS, and the Southwest Regional 
Stranding Coordinator, NMFS.
    The report must include the same information identified in 6(b)(i) 
of this IHA. Activities may continue while NMFS reviews the 
circumstances of the incident. NMFS will work with WETA to determine 
whether additional mitigation measures or modifications to the 
activities are appropriate.
    iii. In the event that discovers an injured or dead marine mammal, 
and the lead observer determines that the injury or death is not 
associated with or related to the activities authorized in the IHA 
(e.g., previously wounded animal, carcass with moderate to advanced 
decomposition, scavenger damage), WETA shall report the incident to the 
Office of Protected Resources, NMFS, and the Southwest Regional 
Stranding Coordinator, NMFS, within 24 hours of the discovery. WETA 
shall provide photographs or video footage or other documentation of 
the stranded animal sighting to NMFS.
    7. This Authorization may be modified, suspended or withdrawn if 
the holder fails to abide by the conditions prescribed herein, or if 
NMFS determines the authorized taking is having more than a negligible 
impact on the species or stock of affected marine mammals.

Request for Public Comments

    We request comment on our analyses, the draft authorization, and 
any other aspect of this Notice of Proposed IHAs for WETA's ferry 
terminal construction activities. Please include with your comments any 
supporting data or literature citations to help inform our final 
decision on WETA's request for an MMPA authorization.

    Dated: May 19, 2016.
Perry F. Gayaldo,
Deputy Director, Office of Protected Resources, National Marine 
Fisheries Service.
[FR Doc. 2016-12299 Filed 5-24-16; 8:45 am]
 BILLING CODE 3510-22-P



                                                                              Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices                                                   33217

                                                  East-West Highway, Silver Spring,                       appointment in the Permits and                        considered. Based on the analyses in the
                                                  Maryland, 20910, phone (240) 533–                       Conservation Division, Office of                      EA, NMFS determined that the activities
                                                  0813, email ocm.czara@noaa.gov.                         Protected Resources, NMFS, 1315 East-                 proposed would not significantly
                                                  FOR FURTHER INFORMATION CONTACT:                        West Highway, Room 13705, Silver                      impact the quality of the human
                                                  Copies of the proposed Findings                         Spring, MD 20910; phone (301) 427–                    environment and that preparation of an
                                                  Document and Programmatic                               8401; fax (301) 713–0376.                             environmental impact statement was
                                                  Environmental Assessment may be                         FOR FURTHER INFORMATION CONTACT:                      not required. That determination is
                                                  found on the NOAA Web site at http://                   Jennifer Skidmore or Amy Sloan, (301)                 documented in a Finding of No
                                                  coast.noaa.gov/czm/pollutioncontrol/ or                 427–8401.                                             Significant Impact.
                                                  may be obtained upon request from:                      SUPPLEMENTARY INFORMATION: On June                      Dated: May 19, 2016.
                                                  Allison Castellan, Stewardship Division                 30, 2015, notice was published in the                 Julia Harrison,
                                                  (N/OCM6), Office for Coastal                            Federal Register (80 FR 37235) that                   Chief, Permits and Conservation Division,
                                                  Management, NOS, NOAA, 1305 East-                       NMFS was considering an amendment                     Office of Protected Resources, National
                                                  West Highway, Silver Spring, Maryland,                  to Permit No. 15337 in response to a                  Marine Fisheries Service.
                                                  20910, phone (240) 533–0799, email                      court decision to remand this permit to               [FR Doc. 2016–12287 Filed 5–24–16; 8:45 am]
                                                  allison.castellan@noaa.gov.                             NMFS for reconsideration. The                         BILLING CODE 3510–22–P
                                                  SUPPLEMENTARY INFORMATION: The                          requested permit amendment has been
                                                  requirements of 40 CFR parts 1500–1508                  issued under the authority of the Marine
                                                  (Council on Environmental Quality                       Mammal Protection Act of 1972, as                     DEPARTMENT OF COMMERCE
                                                  (CEQ) regulations to implement the                      amended (16 U.S.C. 1361 et seq.), the
                                                  National Environmental Policy Act)                      regulations governing the taking and                  National Oceanic and Atmospheric
                                                  apply to the preparation of                             importing of marine mammals (50 CFR                   Administration
                                                  Environmental Assessments.                              part 216).                                            RIN 0648–XE490
                                                  Specifically, 40 CFR 1506.6 requires                       Permit No. 15537 was issued on
                                                  agencies to provide public notice of the                October 5, 2011 authorizing the                       Takes of Marine Mammals Incidental to
                                                  availability of environmental                           acquisition of up to eight stranded,                  Specified Activities; Taking Marine
                                                  documents. This notice is part of                       releasable California sea lions (Zalophus             Mammals Incidental to the San
                                                  NOAA’s action to comply with this                       californianus) from the NMFS Marine                   Francisco Ferry Terminal Expansion
                                                  requirement.                                            Mammal Health and Stranding                           Project, South Basin Improvements
                                                  (Federal Domestic Assistance Catalog 11.419
                                                                                                          Response Program for the purposes of                  Project
                                                  Coastal Zone Management Program                         public display. After NMFS issued the
                                                  Administration)                                         permit, IMMS challenged the provisions                AGENCY:  National Marine Fisheries
                                                                                                          of the permit in U.S. District Court. As              Service (NMFS), National Oceanic and
                                                    Dated: May 18, 2016.                                                                                        Atmospheric Administration (NOAA),
                                                                                                          described in the Court’s opinion, the
                                                  W. Russell Callender,                                   Court remanded the permit to NMFS for                 Commerce.
                                                  Deputy Assistant Administrator for Ocean                reconsideration. IMMS v. NMFS, No.                    ACTION: Notice; proposed incidental
                                                  Services, National Oceanic and Atmospheric              1:11CV318–LG–JMR (S.D.Miss. 2014).                    harassment authorization; request for
                                                  Administration.
                                                                                                          NMFS has amended the permit to                        comments.
                                                  Joel Beauvais,                                          remove Permit Condition B.3 and
                                                  Deputy Assistant Administrator, Office of               change Permit Condition B.2 to state the              SUMMARY:    NMFS has received a request
                                                  Water, Environmental Protection Agency.                 following:                                            from the San Francisco Bay Area Water
                                                  [FR Doc. 2016–12328 Filed 5–24–16; 8:45 am]                                                                   Emergency Transportation Authority
                                                                                                            Condition B.2.: This permit does not
                                                  BILLING CODE 3510–08–P
                                                                                                          guarantee that the Permit Holder will be able
                                                                                                                                                                (WETA) for authorization to take marine
                                                                                                          to obtain any releasable sea lions from               mammals incidental to construction
                                                                                                          rehabilitation facilities, and does not require       activities as part of a ferry terminal
                                                  DEPARTMENT OF COMMERCE                                  NMFS to direct or make arrangements for any           expansion and improvements project.
                                                                                                          rehabilitation facilities to provide the Permit       Pursuant to the Marine Mammal
                                                  National Oceanic and Atmospheric                        Holder with releasable sea lions. Final               Protection Act (MMPA), NMFS is
                                                  Administration                                          decisions with respect to the use of                  requesting public comment on its
                                                                                                          rehabilitated marine mammals for public               proposal to issue an incidental
                                                  RIN 0648–XA756                                          display purposes in lieu of take from the wild
                                                                                                          are at the ultimate discretion of the Office          harassment authorization (IHA) to
                                                  Marine Mammals; File No. 15537                          Director in accordance with 50 CFR                    WETA to incidentally take marine
                                                                                                          216.27(b)(4).                                         mammals, by Level B harassment only,
                                                  AGENCY:  National Marine Fisheries
                                                                                                            In addition, NMFS has extended the                  during the specified activity.
                                                  Service (NMFS), National Oceanic and
                                                  Atmospheric Administration (NOAA),                      permit for one additional year, to expire             DATES: Comments and information must
                                                  Commerce.                                               on October 5, 2017.                                   be received no later than June 24, 2016.
                                                  ACTION: Notice; issuance of permit                        In compliance with the National                     ADDRESSES: Comments on this proposal
                                                  amendment.                                              Environmental Policy Act of 1969                      should be addressed to Jolie Harrison,
                                                                                                          (NEPA; 42 U.S.C. 4321 et seq.), NMFS                  Chief, Permits and Conservation
                                                  SUMMARY:  Notice is hereby given that an                has determined that the activities                    Division, Office of Protected Resources,
                                                  amendment to Permit No. 15537 has                       proposed are consistent with those                    National Marine Fisheries Service.
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                                                  been issued to Institute for Marine                     analyzed in the environmental                         Physical comments should be sent to
                                                  Mammal Studies (IMMS), P.O. Box 207,                    assessment (EA) for issuance of Permit                1315 East-West Highway, Silver Spring,
                                                  Gulfport, MS 39502 (Dr. Moby Solangi,                   No. 15537, and no additional NEPA                     MD 20910, and electronic comments
                                                  Responsible Party).                                     analysis is necessary as the minor                    should be sent to ITP.mccue@noaa.gov.
                                                  ADDRESSES: The permit amendment and                     changes in the proposed amendment                       Instructions: NMFS is not responsible
                                                  related documents are available for                     will not change the effects to the human              for comments sent by any other method,
                                                  review upon written request or by                       environment in a manner not previously                to any other address or individual, or


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                                                  33218                       Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices

                                                  received after the end of the comment                   methods of taking and requirements                    proposed IHA is for the first phase of
                                                  period. Comments received                               pertaining to the mitigation, monitoring              construction activities (July 1, 2016–
                                                  electronically, including all                           and reporting of such taking must be set              December 31, 2016).
                                                  attachments, must not exceed a 25-                      forth, either in specific regulations or in             The use of both vibratory and impact
                                                  megabyte file size. Attachments to                      an authorization.                                     pile driving is expected to produce
                                                  electronic comments will be accepted in                    The allowance of such incidental                   underwater sound at levels that have the
                                                  Microsoft Word or Excel or Adobe PDF                    taking under section 101(a)(5)(A), by                 potential to result in behavioral
                                                  file formats only. All comments                         harassment, serious injury, death, or a               harassment of marine mammals. Seven
                                                  received are a part of the public record                combination thereof, requires that                    species of marine mammals have the
                                                  and will generally be posted to the                     regulations be established.                           potential to be affected by the specified
                                                  Internet at www.nmfs.noaa.gov/pr/                       Subsequently, a Letter of Authorization               activities: Harbor seal (Phoca vitulina),
                                                  permits/incidental/construction.html                    may be issued pursuant to the                         California sea lion (Zalophus
                                                  without change. All personal identifying                prescriptions established in such                     californianus), Northern elephant seal
                                                  information (e.g., name, address)                       regulations, providing that the level of              (Mirounga angustirostris), Northern fur
                                                  voluntarily submitted by the commenter                  taking will be consistent with the                    seal (Callorhinus ursinus), harbor
                                                  may be publicly accessible. Do not                      findings made for the total taking                    porpoise (Phocoena phocoena), gray
                                                  submit confidential business                            allowable under the specific regulations.             whale (Eschrichtius robustus), and
                                                  information or otherwise sensitive or                   Under section 101(a)(5)(D), NMFS may                  bottlenose dolphin (Tursiops truncatus).
                                                  protected information.                                  authorize such incidental taking by                   These species may occur year round in
                                                  FOR FURTHER INFORMATION CONTACT:                        harassment only, for periods of not more
                                                                                                                                                                the action area.
                                                  Laura McCue, Office of Protected                        than one year, pursuant to requirements
                                                                                                          and conditions contained within an                      Similar construction and pile driving
                                                  Resources, NMFS, (301) 427–8401.
                                                                                                          IHA. The establishment of prescriptions               activities in San Francisco Bay have
                                                  SUPPLEMENTARY INFORMATION:                                                                                    been authorized by NMFS in the past.
                                                                                                          through either specific regulations or an
                                                  Availability                                            authorization requires notice and                     These projects include construction
                                                    An electronic copy of WETA’s                          opportunity for public comment.                       activities at the Exploratorium (75 FR
                                                  application and supporting documents,                      NMFS has defined ‘‘negligible                      66065), pier 36 (77 FR 20361), and the
                                                  as well as a list of the references cited               impact’’ in 50 CFR 216.103 as ‘‘. . . an              Oakland Bay Bridge (71 FR 26750; 72
                                                  in this document, may be obtained by                    impact resulting from the specified                   FR 25748; 74 FR 41684; 76 FR 7156; 78
                                                  visiting the Internet at:                               activity that cannot be reasonably                    FR 2371; 79 FR 2421; and 80 FR 43710).
                                                  www.nmfs.noaa.gov/pr/permits/                           expected to, and is not reasonably likely             Description of the Specified Activity
                                                  incidental/construction.html. In case of                to, adversely affect the species or stock
                                                  problems accessing these documents,                     through effects on annual rates of                    Overview
                                                  please call the contact listed above.                   recruitment or survival.’’ Except with
                                                                                                                                                                   The San Francisco Bay Area Water
                                                                                                          respect to certain activities not pertinent
                                                  National Environmental Policy Act                                                                             Emergency Transportation Authority
                                                                                                          here, section 3(18) of the MMPA defines
                                                                                                                                                                (WETA) is expanding berthing capacity
                                                    NMFS is currently conducting an                       ‘‘harassment’’ as: ‘‘. . . any act of
                                                                                                                                                                at the Downtown San Francisco Ferry
                                                  analysis, pursuant to National                          pursuit, torment, or annoyance which (i)
                                                                                                                                                                Terminal (Ferry Terminal), located at
                                                  Environmental Policy Act (NEPA), to                     has the potential to injure a marine
                                                                                                                                                                the San Francisco Ferry Building (Ferry
                                                  determine whether or not this proposed                  mammal or marine mammal stock in the
                                                                                                                                                                Building), to support existing and future
                                                  activity may have a significant effect on               wild [Level A harassment]; or (ii) has
                                                                                                                                                                planned water transit services operated
                                                  the human environment. This analysis                    the potential to disturb a marine
                                                                                                          mammal or marine mammal stock in the                  on San Francisco Bay by WETA and
                                                  will be completed prior to the issuance
                                                                                                          wild by causing disruption of behavioral              WETA’s emergency operations.
                                                  or denial of this proposed IHA.
                                                                                                          patterns, including, but not limited to,                 The Downtown San Francisco Ferry
                                                  Background                                              migration, breathing, nursing, breeding,              Terminal Expansion Project would
                                                     Sections 101(a)(5)(A) and (D) of the                 feeding, or sheltering [Level B                       eventually include phased construction
                                                  MMPA (16 U.S.C. 1361 et seq.) direct                    harassment].’’                                        of three new water transit gates and
                                                  the Secretary of Commerce to allow,                                                                           overwater berthing facilities, in addition
                                                  upon request by U.S. citizens who                       Summary of Request                                    to supportive landside improvements,
                                                  engage in a specified activity (other than                 On February 8, 2016, we received a                 such as additional passenger waiting
                                                  commercial fishing) within a specified                  request from WETA for authorization of                and queuing areas, circulation
                                                  area, the incidental, but not intentional,              the taking, by level B harassment only,               improvements, and other water transit-
                                                  taking of small numbers of marine                       of marine mammals, incidental to pile                 related amenities. The new gates and
                                                  mammals, providing that certain                         driving in association with the San                   other improvements would be designed
                                                  findings are made and the necessary                     Francisco Ferry Terminal Expansion                    to accommodate future planned water
                                                  prescriptions are established.                          Project, South Basin Improvements                     transit services between Downtown San
                                                     The incidental taking of small                       Project in San Francisco Bay, California.             Francisco and Antioch, Berkeley,
                                                  numbers of marine mammals may be                        That request was modified to include                  Martinez, Hercules, Redwood City,
                                                  allowed only if NMFS (through                           additional species and additional                     Richmond, and Treasure Island, as well
                                                  authority delegated by the Secretary)                   monitoring and mitigation measures on                 as emergency operation needs.
                                                  finds that the total taking by the                      March 28, 2016 and May 2, 2016, and                   According to current planning and
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                                                  specified activity during the specified                 a final version, which we deemed                      operating assumptions, WETA will not
                                                  time period will (i) have a negligible                  adequate and complete, was submitted                  require all three new gates (Gates A, F,
                                                  impact on the species or stock(s) and (ii)              on May 13, 2016, which included                       and G) to support existing and new
                                                  not have an unmitigable adverse impact                  revised take numbers and additional                   services immediately. As a result,
                                                  on the availability of the species or                   mitigation measures. In-water work                    WETA is planning that project
                                                  stock(s) for subsistence uses (where                    associated with the project is expected               construction will be phased. The first
                                                  relevant). Further, the permissible                     to be completed within 23 months. This                phase will include construction of Gates


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                                                                                  Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices                                                                       33219

                                                  F and G, as well as other related                               adjacent Sacramento-San Joaquin Delta                       Figure 1 in the WETA’s application,
                                                  improvements in the South Basin.                                make up one of the largest estuarine                        which depicts the project area, and
                                                                                                                  systems on the continent. The Bay has                       Figure 2, which depicts the project
                                                  Dates and Duration
                                                                                                                  undergone extensive industrialization,                      improvements). The project includes the
                                                     The total project is expected to                             but remains an important environment                        following elements: (1) Removal of
                                                  require a maximum of 130 days of in-                            for healthy marine mammal populations                       portions of existing deck and pile
                                                  water pile driving. The project may                             year round. The area surrounding the                        construction (portions will remain as
                                                  require up to 23 months for completion;                         proposed activity is an intertidal                          open water, and other portions will be
                                                  with a maximum of 106 days for pile                             landscape with heavy industrial use and                     replaced); (2) Construction of two new
                                                  driving in the first year. In-water                             boat traffic.                                               gates (Gates F and G); (3) Relocation of
                                                  activities are limited to occur between                                                                                     an existing gate (Gate E); and (4)
                                                  July 1 and November 30, 2016 and June                           Detailed Description of Activities
                                                                                                                                                                              Improved passenger boarding areas,
                                                  1 through November 30, 2017. If in-                                                                                         amenities, and circulation, including
                                                                                                                    The project supports existing and
                                                  water work will extend beyond the                                                                                           extending the East Bayside Promenade
                                                                                                                  future planned water transit services
                                                  effective dates of the IHA, a second IHA                                                                                    along Gates E, F, and G; strengthening
                                                                                                                  operated by WETA, and regional
                                                  application will be submitted by WETA.
                                                                                                                  policies to encourage transit uses.                         the South Apron of the Agriculture
                                                  This proposed authorization would be
                                                                                                                  Furthermore, the project addresses                          Building; creating the Embarcadero
                                                  effective from July 1, 2016 to December
                                                                                                                  deficiencies in the transportation                          Plaza; and installing weather protection
                                                  31, 2016.
                                                                                                                  network that impede water transit                           canopies for passenger queuing.
                                                  Specific Geographic Region                                      operation, passenger access, and                              Implementation of the project
                                                    The San Francisco ferry terminal is                           passenger circulation at the Ferry                          improvements will result in a change in
                                                  located in the western shore of San                             Terminal.                                                   the type and area of structures over San
                                                  Francisco Bay (see Figure 1 of WETA’s                             The project includes construction of                      Francisco Bay. In some areas, structures
                                                  application). The ferry terminal is five                        two new water transit gates and                             will be demolished and then rebuilt.
                                                  blocks north of the San Francisco                               associated overwater berthing facilities,                   The project will require both the
                                                  Oakland Bay Bridge. More specifically,                          in addition to supportive improvements,                     removal and installation of piles as
                                                  the south basin of the ferry terminal is                        such as additional passenger waiting                        summarized in Table 1. Demolition and
                                                  located between Pier 14 and the ferry                           and queuing areas and circulation                           construction could be completed within
                                                  plaza. San Francisco Bay and the                                improvements in a 7.7-acre area (see                        23 months.

                                                                                                   TABLE 1—SUMMARY OF PILE REMOVAL AND INSTALLATION
                                                         Project element                         Pile diameter                           Pile type                            Method                      Number of piles/schedule

                                                  Demolition in the South               12 to 18 inches .................       Wood and concrete ...........   Pull or cut off 2 feet below              350 piles/30 days 2016.
                                                    Basin.                                                                                                        mud line.
                                                  Removal of Dolphin Piles              36 inches ...........................   Steel: 140 to 150 feet in       Pull out ..............................   Four dolphin piles.
                                                    in the South Basin.                                                           length.
                                                  Embarcadero Plaza and                 24 or 36 inches .................       Steel: 135 to 155 feet in       Impact or Vibratory Driver                220 24- or 36-inch piles/65
                                                    East Bayside Prome-                                                           length.                                                                   days 2016.
                                                    nade.
                                                  Gates E, F, and G Dolphin             36 inches ...........................   Steel: 145 to 155 feet in       Impact or Vibratory Driver                14 total: Two at each of
                                                    Piles.                                                                        length.                                                                   the floats for protection;
                                                                                                                                                                                                            two between each of the
                                                                                                                                                                                                            floats; and four adjacent
                                                                                                                                                                                                            to the breakwater.
                                                  Gates F and G Guide Piles             36 inches ...........................   Steel: 140 to 150 feet in       Impact or Vibratory Driver                12 (6 per gate)/12 days
                                                                                                                                  length.                                                                   2017.
                                                  Gate E Guide Piles ...........        36 inches ...........................   Steel: 145 to 155 feet in       Vibratory Driver for re-                  Six piles will be removed
                                                                                                                                  length.                         moval, may be re-                         and reinstalled/12 days
                                                                                                                                                                  installed with an impact                  2017.
                                                                                                                                                                  driver.
                                                  Fender Piles ......................   14 inches ...........................   Polyurethane-coated pres-       Impact or Vibratory Driver                38/10 days 2016.
                                                                                                                                  sure-treated wood; 64
                                                                                                                                  feet in length.



                                                  Removal of Existing Facilities                                  (crane, clamshell bucket for pulling of                     designed with an entrance portal—a
                                                                                                                  piles, and excavator for removal of the                     prominent doorway physically
                                                    As part of the project, the remnants of                       deck). Diesel-powered tug boats will                        separating the berthing structures from
                                                  Pier 2 will be demolished and removed.                          bring the barges to the project area,                       the surrounding area. Berthing
                                                  This consists of approximately 21,000                           where they will be anchored. Piles will                     structures will be provided for each new
                                                  square feet of existing deck structure                          be removed by either cutting them off                       gate, consisting of floats, gangways, and
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                                                  supported by approximately 350 wood                             two feet below the mud line or pulling                      guide piles. The steel floats will be
                                                  and concrete piles. In addition, four                           the pile.                                                   approximately 42 feet wide by 135 feet
                                                  dolphin piles will be removed.                                                                                              long. The steel truss gangways will be
                                                  Demolition will be conducted from                               Construction of Gates and Berthing
                                                                                                                                                                              approximately 14 feet wide and 105 feet
                                                                                                                  Structures
                                                  barges. Two barges will be required:                                                                                        long. The gangway will be designed to
                                                  One for materials storage, and one                                The new gates (Gates F and G) will be                     rise and fall with tidal variations while
                                                  outfitted with demolition equipment                             built similarly. Each gate will be                          meeting Americans with Disabilities Act


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                                                  33220                                  Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices

                                                  (ADA) requirements. The gangway and                                       grade, will be created. The Embarcadero                          The new deck will be constructed on
                                                  the float will be designed with canopies,                                 Plaza will require new deck and pile                          the piles, using a system of beam-and-
                                                  consistent with the current design of                                     construction to fill an open-water area                       flat-slab-concrete construction, similar
                                                  existing Gates B and E. The berthing                                      and replace existing structures that do                       to what has been built in the Ferry
                                                  structures will be fabricated off site and                                not comply with Essential Facilities                          Building area. The beam-and-slab
                                                  floated to the project area by barge. Six                                 requirements.                                                 construction will be either precast or
                                                  steel guide piles will be required to                                       • The East Bayside Promenade will                           cast-in-place concrete (or a combination
                                                  secure each float in place. In addition,                                  be extended to create continuous                              of the two), and approximately 2.5 feet
                                                  dolphin piles may be used at each                                         pedestrian access to Gates E, F, and G,                       thick. Above the structure, granite
                                                  berthing structure to protect against the                                 as well as to meet public access and                          paving or a concrete topping slab will
                                                  collision of vessels with other structures                                pedestrian circulation requirements                           provide a finished pedestrian surface.
                                                  or vessels. A total of up to 14 dolphin                                   along San Francisco Bay. It will extend                          The passenger facilities, amenities,
                                                  piles may be installed.                                                   approximately 430 feet in length, and                         and public space improvements—such
                                                     Chock-block fendering will be added                                    will provide an approximately 25-foot-                        as the entrance portals, canopy
                                                  along the East Bayside Promenade, to                                      wide area for pedestrian circulation and                      structures, lighting, guardrails, and
                                                  adjacent structures to protect against                                    public access along Gates E, F, and G.                        furnishings—will be surface-mounted
                                                  collision. The chock-block fendering                                      The perimeter of the East Bayside                             on the pier structures after the new
                                                  will consist of square, 12-inch-wide,                                     Promenade will also include a curbed                          construction and repair are complete.
                                                  polyurethane-coated, pressure-treated                                     edge with a guardrail.                                        The canopies and entrance portals will
                                                  wood blocks that are connected along                                        • Short access piers, approximately                         be constructed offsite, delivered to the
                                                  the side of the adjacent pier structure,                                  30 feet wide and 45 feet long, will                           site, craned into place by barge, and
                                                  and supported by polyurethane-coated,                                     extend from the East Bayside                                  assembled onsite. The glazing materials,
                                                  pressure-treated wood piles. In addition,                                 Promenade to the portal for each gate.                        cladding materials, granite pavers,
                                                  the existing Gate E float will be moved
                                                                                                                              • The South Apron of the Agriculture                        guardrails, and furnishings will be
                                                  43 feet to the east, to align with the new
                                                                                                                            Building will be upgraded to                                  assembled onsite.
                                                  gates and East Bayside Promenade. The
                                                  existing six 36-inch-diameter steel guide                                 temporarily support access for
                                                                                                                                                                                          Dredging Requirements
                                                  piles will be removed using vibratory                                     passenger circulation. Depending on
                                                  extraction, and reinstalled to secure the                                 their condition, as determined during                            The side-loading vessels require a
                                                  Gate E float in place. Because of Gate E’s                                Final Design, the piles supporting this                       depth of 12.5 feet below mean lower
                                                  new location, to meet ADA                                                 apron may need to be strengthened with                        low water (MLLW) on the approach and
                                                  requirements, the existing 90-foot-long                                   steel jackets.                                                in the berthing area. Based on a
                                                  steel truss gangway will be replaced                                        • Two canopies will be constructed                          bathymetric survey conducted in 2015,
                                                  with a longer, 105-foot-long gangway.                                     along the East Bayside Promenade: One                         it is estimated that the new Gates F and
                                                                                                                            between Gates E and F, and one                                G will require dredging to meet the
                                                  Passenger Boarding and Circulation                                        between Gates F and G. Each of the                            required depths. The expected dredging
                                                  Areas                                                                     canopies will be 125 feet long and 20                         volumes are presented in Table 2. These
                                                     Several improvements will be made to                                   feet wide. Each canopy will be                                estimates are based on dredging the
                                                  passenger boarding and circulation                                        supported by four columns at 35 feet on                       approach areas to 123.5 feet below
                                                  areas. New deck and pile-supported                                        center, with 10-foot cantilevers at either                    MLLW, and 2 feet of overdredge depth,
                                                  structures will be built.                                                 end. The canopies will be constructed of                      to account for inaccuracies in dredging
                                                     • An Embarcadero Plaza, elevated                                       steel and glass, and will include                             practices. The dredging will take
                                                  approximately 3 to 4 feet above current                                   photovoltaic cells.                                           approximately 2 months.

                                                                                                                 TABLE 2—SUMMARY OF DREDGING REQUIREMENTS
                                                                                          Dredging element                                                                                         Summary

                                                  Initial Dredging
                                                        Gate F ...............................................................................................   0.78 acre/6,006 cubic yards.
                                                        Gate G ...............................................................................................   1.64 acres/14,473 cubic yards.
                                                        Total for Gates F and G ....................................................................             2.42 acres/20,479 cubic yards.
                                                        Staging ..............................................................................................   On barges.
                                                        Typical Equipment .............................................................................          Clamshell dredge on barge; disposal barge; survey boat.
                                                        Duration .............................................................................................   2 months.
                                                  Maintenance Dredging
                                                        Gates F and G ..................................................................................         5,000 to 10,000 cubic yards.
                                                        Frequency ..........................................................................................     Every 3 or 4 years.



                                                    Based on observed patterns of                                           to their proximity to the Pier 14                             (DMMO), including development of a
                                                  sediment accumulation in the Ferry                                        breakwater. It is expected that                               sampling plan, sediment
                                                  Terminal area, significant sediment                                       maintenance dredging will be required                         characterization, a sediment removal
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                                                  accumulation will not be expected,                                        every 3 to 4 years, and will require                          plan, and disposal in accordance with
                                                  because regular maintenance dredging is                                   removal of approximately 5,000 to                             the Long-Term Management Strategy for
                                                  not currently required to maintain                                        10,000 cubic yards of material.                               San Francisco Bay to ensure beneficial
                                                  operations at existing Gates B and E.                                       Dredging and disposal of dredged                            reuse, as appropriate. DMMO
                                                  However, some dredging will likely be                                     materials will be conducted in                                consultation is expected to begin in
                                                  required on a regular maintenance cycle                                   cooperation with the San Francisco                            early 2016. Based on the results of the
                                                  beneath the floats at Gates F and G, due                                  Dredged Materials Management Office                           sediment analysis, the alternatives for


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                                                                                   Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices                                                                       33221

                                                  placement of dredged materials will be                             dolphin (Tursiops truncatus). Multiple                                area during construction activities, their
                                                  evaluated, including disposal at the San                           additional marine mammal species may                                  occurrence is unlikely. No takes are
                                                  Francisco Deep Ocean Disposal Site,                                occasionally enter the activity area in                               requested for this species, and
                                                  disposal at an upland facility, or                                 San Francisco Bay but would not be                                    mitigation measures such as a delay and
                                                  beneficial reuse. Selection of the                                 expected to occur in shallow nearshore                                shutdown procedure will be in effect for
                                                  disposal site will be reviewed and                                 waters of the action area. Guadalupe fur                              this species if observed approaching the
                                                  approved by the DMMO.                                              seals (Arctocephalus townsendi)                                       Level B harassment zone. Table 3 lists
                                                                                                                     generally do not occur in San Francisco                               the marine mammal species with
                                                  Description of Marine Mammals in the                               Bay; however, there have been recent
                                                  Area of the Specified Activity                                                                                                           expected potential for occurrence in the
                                                                                                                     sightings of this species due to the El
                                                     There are seven marine mammal                                                                                                         vicinity of the SF Ferry terminal during
                                                                                                                     Niño event. Only single individuals of
                                                  species which may inhabit or may likely                                                                                                  the project timeframe and summarizes
                                                                                                                     this species have occasionally been
                                                  transit through the waters nearby the                              sighted inside San Francisco Bay, and                                 key information regarding stock status
                                                  Ferry Terminal, and which are expected                             their presence near the action area is                                and abundance. Taxonomically, we
                                                  to potentially be taken by the specified                           considered unlikely. No takes are                                     follow Committee on Taxonomy (2014).
                                                  activity. These include the Pacific                                requested for this species, and                                       Please see NMFS’ Stock Assessment
                                                  harbor seal (Phoca vitulina), California                           mitigation measures such as a shutdown                                Reports (SAR), available at
                                                  sea lion (Zalophus californianus),                                 zone will be in effect for this species if                            www.nmfs.noaa.gov/pr/sars, for more
                                                  Northern Elephant seal (Mirounga                                   observed approaching the Level B                                      detailed accounts of these stocks’ status
                                                  angustirostris), Northern fur seal                                 harassment zone. Although it is possible                              and abundance. Please also refer to
                                                  (Callorhinus ursinus), harbor porpoise                             that a humpback whale (Megaptera                                      NMFS’ Web site (www.nmfs.noaa.gov/
                                                  (Phocoena phocoena), gray whale                                    navaeangliae) may enter San Francisco                                 pr/species/mammals) for generalized
                                                  (Eschrichtius robustus), and bottlenose                            Bay and find its way into the project                                 species accounts.
                                                             TABLE 3—MARINE MAMMALS POTENTIALLY PRESENT IN THE VICINITY OF SAN FRANCISCO FERRY TERMINAL
                                                                                                                                 ESA/MMPA               Stock abundance (CV,                                     Relative occurrence in
                                                             Species                                  Stock                      Status; stra-          Nmin, most recent abun-                  PBR 3           Strait of Juan de Fuca;
                                                                                                                                 tegic (Y/N) 1              dance survey) 2                                      season of occurrence

                                                                          Order Cetartiodactyla—Cetacea—Superfamily Odontoceti (toothed whales, dolphins, and porpoises)

                                                  Family Phocoenidae (por-
                                                    poises)
                                                  Harbor porpoise ...............      San Francisco-Russian                     -; N ..............   9,886 (0.51; 6,625; 2011)                           66   Common.
                                                                                         River.

                                                                          Order Cetartiodactyla—Cetacea—Superfamily Odontoceti (toothed whales, dolphins, and porpoises)

                                                  Family Delphinidae (dol-
                                                    phins)
                                                  Bottlenose dolphin 5 .........       California coastal .............          -; N ..............   323 (0.13; 290; 2005) ......                      2.4    Rare.

                                                                          Order Cetartiodactyla—Cetacea—Superfamily Odontoceti (toothed whales, dolphins, and porpoises)

                                                  Family Eschrichtiidae
                                                  Gray whale .......................   Eastern N. Pacific ............           -; N ..............   20,990 (0.05; 20,125;                             624    Rare.
                                                                                                                                                         2011).

                                                                                               Order Cetartiodactyla—Cetacea—Superfamily Mysticeti (baleen whales)

                                                  Family Balaenopteridae
                                                  Humpback whale .............         California/Oregon/Wash-                   E; S .............    1,918 ................................              11   Unlikely.
                                                                                         ington stock.

                                                                                                                       Order Carnivora—Superfamily Pinnipedia

                                                  Family Otariidae (eared
                                                    seals and sea lions)
                                                  California sea lion ............     U.S. ..................................   -; N ..............   296,750 (n/a; 153,337;                         9,200     Common.
                                                                                                                                                         2011).
                                                  Guadalupe fur seal 5 ........        Mexico to California .........            T; S .............    7,408 (n/a; 3,028; 1993) ..                        91    Unlikely.
                                                  Northern fur seal ..............     California stock ................         -; N ..............   14,050 (n/a; 7,524; 2013)                         451    Unlikely.

                                                  Family Phocidae (earless
                                                    seals)
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                                                  Harbor seal ......................   California ..........................     -; N ..............   30,968 (n/a; 27,348;                           1,641     Common; Year-round
                                                                                                                                                         2012).                                                  resident.
                                                  Northern elephant seal ....          California breeding stock                 -; N ..............   179,000 (n/a; 81,368;                          4,882     Rare.
                                                                                                                                                         2010).
                                                     1 ESA status: Endangered (E), Threatened (T)/MMPA status: Depleted (D). A dash (-) indicates that the species is not listed under the ESA or
                                                  designated as depleted under the MMPA. Under the MMPA, a strategic stock is one for which the level of direct human-caused mortality ex-
                                                  ceeds PBR (see footnote 3) or which is determined to be declining and likely to be listed under the ESA within the foreseeable future. Any spe-
                                                  cies or stock listed under the ESA is automatically designated under the MMPA as depleted and as a strategic stock.



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                                                  33222                       Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices

                                                    2 CV is coefficient of variation; N
                                                                                       min is the minimum estimate of stock abundance. In some cases, CV is not applicable. For certain stocks,
                                                  abundance estimates are actual counts of animals and there is no associated CV. The most recent abundance survey that is reflected in the
                                                  abundance estimate is presented; there may be more recent surveys that have not yet been incorporated into the estimate.
                                                    3 Potential biological removal, defined by the MMPA as the maximum number of animals, not including natural mortalities, that may be re-
                                                  moved from a marine mammal stock while allowing that stock to reach or maintain its optimum sustainable population size (OSP).
                                                    4 These values, found in NMFS’ SARs, represent annual levels of human-caused mortality plus serious injury from all sources combined (e.g.,
                                                  commercial fisheries, subsistence hunting, ship strike). Annual M/SI often cannot be determined precisely and is in some cases presented as a
                                                  minimum value. All values presented here are from the draft 2015 SARs (www.nmfs.noaa.gov/pr/sars/draft.htm).
                                                    5 Abundance estimates for these stocks are greater than eight years old and are therefore not considered current. PBR is considered undeter-
                                                  mined for these stocks, as there is no current minimum abundance estimate for use in calculation. We nevertheless present the most recent
                                                  abundance estimates and PBR values, as these represent the best available information for use in this document.


                                                    Below, for those species that are likely              through July) (Truchinski et al., 2008;               under the ESA. PBR is 9,200 (Caretta et
                                                  to be taken by the activities described,                Flynn et al., 2009; Codde et al., 2010;               al, 2015). Interactions with fisheries,
                                                  we offer a brief introduction to the                    Codde et al., 2011; Codde et al., 2012;               boat collisions, human interactions, and
                                                  species and relevant stock as well as                   Codde and Allen, 2015). Marine                        entanglement are the main threats to
                                                  available information regarding                         mammal monitoring at multiple                         this species (Caretta et al 2015).
                                                  population trends and threats, and                      locations inside San Francisco Bay was                   El Niño affects California sea lion
                                                  describe any information regarding local                conducted by Caltrans from May 1998 to                populations, with increased
                                                  occurrence.                                             February 2002, and determined that at                 observations and strandings of this
                                                                                                          least 500 harbor seals populate San                   species in the area. Current observations
                                                  Harbor Seal                                                                                                   of this species in CA have increased
                                                                                                          Francisco Bay (Green et al., 2002). This
                                                     The Pacific harbor seal is one of five               estimate is consistent with previous seal             significantly over the past few years.
                                                  subspecies of Phoca vitulina, or the                    counts in the San Francisco Bay, which                Additionally, as a result of the large
                                                  common harbor seal. There are five                      ranged from 524 to 641 seals from 1987                numbers of sea lion strandings in 2013,
                                                  species of harbor seal in the Pacific EEZ:              to 1999 (Goals Project, 2000). Although               NOAA declared an unusual mortality
                                                  (1) California stock; (2) Oregon/                       harbor seals haul-out at approximately                event (UME). Although the exact causes
                                                  Washington coast stock; (3) Washington                  20 locations in San Francisco Bay, there              of this UME are unknown, two
                                                  Northern inland waters stock; (4)                       are three locations that serve as primary             hypotheses meriting further study
                                                  Southern Puget Sound stock; and (5)                     locations: Mowry Slough in the south                  include nutritional stress of pups
                                                  Hood Canal stock. Only the California                   Bay, Corte Madera Marsh and Castro                    resulting from a lack of forage fish
                                                  stock occurs in the action area and is                  Rocks in the north Bay, and Yerba                     available to lactating mothers and
                                                  analyzed in this document. The current                  Buena Island in the central Bay (Grigg,               unknown disease agents during that
                                                  abundance estimate for this stock is                    2008; Gibble, 2011). The main pupping                 time period.
                                                  30,968. This stock is not considered                    areas in the San Francisco Bay are at                    In San Francisco Bay, sea lions haul
                                                  strategic or designated as depleted                     Mowry Slough and Castro Rocks                         out primarily on floating K docks at Pier
                                                  under the MMPA and is not listed under                  (Caltrans, 2012). Pupping season for                  39 in the Fisherman’s Wharf area of the
                                                  the ESA. PBR is 1,641 animals per year.                 harbor seals in San Francisco Bay spans               San Francisco Marina. The Pier 39 haul
                                                  The average annual rate of incidental                   from approximately March 15 through                   out is approximately 1.5 miles from the
                                                  commercial fishery mortality (30                        May 31, with pup numbers generally                    project vicinity. The Marine Mammal
                                                  animals) is less than 10% of the                        peaking in late April or May (Caretta et              Center (TMMC) in Sausalito, California
                                                  calculated PBR (1,641 animals);                         al 2015). Births of harbor seals have not             has performed monitoring surveys at
                                                  therefore, fishery mortality is                         been observed at Corte Madera Marsh                   this location since 1991. A maximum of
                                                  considered insignificant (Allen and                     and Yerba Buena Island, but a few pups                1,706 sea lions was seen hauled out
                                                  Angliss, 2013).                                         have been seen at these sites. Harbor                 during one survey effort in 2009
                                                     Although generally solitary in the                   seals forage in shallow waters on a                   (TMMC, 2015). Winter numbers are
                                                  water, harbor seals congregate at                       variety of fish and crustaceans that are              generally over 500 animals (Goals
                                                  haulouts to rest, socialize, breed, molt.               present throughout much of San                        Project, 2000). In August to September,
                                                  Habitats used as haul-out sites include                 Francisco Bay, and therefore could                    counts average from 350 to 850 (NMFS,
                                                  tidal rocks, bayflats, sandbars, and                    occasionally be found foraging in the                 2004). Of the California sea lions
                                                  sandy beaches (Zeiner et al., 1990).                    action area as well.                                  observed, approximately 85 percent
                                                  Haul-out sites are relatively consistent                                                                      were male. No pupping activity has
                                                  from year-to-year (Kopec and Harvey,                    California Sea Lion                                   been observed at this site or at other
                                                  1995), and females have been recorded                      California sea lions range all along the           locations in the San Francisco Bay
                                                  returning to their own natal haul-out                   western border of North America. The                  (Caltrans, 2012). The California sea lions
                                                  when breeding (Cunningham et al.,                       breeding areas of the California sea lion             usually frequent Pier 39 in August after
                                                  2009). Long-term monitoring studies                     are on islands located in southern                    returning from the Channel Islands
                                                  have been conducted at the largest                      California, western Baja California, and              (Caltrans, 2013). In addition to the Pier
                                                  harbor seal colonies in Point Reyes                     the Gulf of California (Allen and Angliss             39 haul-out, California sea lions haul
                                                  National Seashore and Golden Gate                       2015). Although California sea lions                  out on buoys and similar structures
                                                  National Recreation Area since 1976.                    forage and conduct many activities in                 throughout San Francisco Bay. They
                                                  Castro Rocks and other haulouts in San                  the water, they also use haul-outs.                   mainly are seen swimming off the San
                                                  Francisco Bay are part of the regional                  California sea lions breed in Southern                Francisco and Marin shorelines within
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                                                  survey area for this study and have been                California and along the Channel                      San Francisco Bay, but may
                                                  included in annual survey efforts.                      Islands during the spring. The current                occasionally enter the project area to
                                                  Between 2007 and 2012, the average                      population estimate for California sea                forage.
                                                  number of adults observed ranged from                   lions is 296,750 animals. This species is                Although there is little information
                                                  126 to 166 during the breeding season                   not considered strategic under the                    regarding the foraging behavior of the
                                                  (March through May), and from 92 to                     MMPA, and is not designated as                        California sea lion in the San Francisco
                                                  129 during the molting season (June                     depleted. This species is also not listed             Bay, they have been observed foraging


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                                                                              Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices                                             33223

                                                  on a regular basis in the shipping                      occasionally make brief stops in San                  considered depleted under the MMPA,
                                                  channel south of Yerba Buena Island.                    Francisco Bay.                                        and is not listed under the ESA.
                                                  Foraging grounds have also been
                                                                                                          Northern Fur Seal                                     Gray Whale
                                                  identified for pinnipeds, including sea
                                                  lions, between Yerba Buena Island and                      Northern fur seals (Callorhinus                       Once common throughout the
                                                  Treasure Island, as well as off the                     ursinus) occur from southern California               Northern Hemisphere, the gray whale
                                                  Tiburon Peninsula (Caltrans, 2001).                     north to the Bering Sea and west to the               was extinct in the Atlantic by the early
                                                                                                          Okhotsk Sea and Honshu Island, Japan.                 1700s. Gray whales are now only
                                                  Northern Elephant Seal                                  During the breeding season,                           commonly found in the North Pacific.
                                                     Northern elephant seals breed and                    approximately 74% of the worldwide                    Genetic comparisons indicate there are
                                                  give birth in California (U.S.) and Baja                population is found on the Pribilof                   distinct ‘‘Eastern North Pacific’’ (ENP)
                                                  California (Mexico), primarily on                       Islands in the southern Bering Sea, with              and ‘‘Western North Pacific’’ (WNP)
                                                  offshore islands (Stewart et al. 1994),                 the remaining animals spread                          population stocks, with differentiation
                                                  from December to March (Stewart and                     throughout the North Pacific Ocean                    in both mtDNA haplotype and
                                                  Huber 1993). Although movement and                      (Lander and Kajimura 1982). Of the                    microsatellite allele frequencies (LeDuc
                                                  genetic exchange continues between                      seals in U.S. waters outside of the                   et al. 2002; Lang et al. 2011a; Weller et
                                                  rookeries, most elephant seals return to                Pribilofs, approximately one percent of               al. 2013). Only the ENP stock occurs in
                                                  natal rookeries when they start breeding                the population is found on Bogoslof                   the action area and is considered in this
                                                  (Huber et al. 1991). The California                     Island in the southern Bering Sea, San                document. The current population
                                                  breeding population is now                              Miguel Island off southern California                 estimate for this stock is 20,990 animals,
                                                  demographically isolated from the Baja                  (NMFS 2007), and the Farallon Islands                 with PBR at 624 animals (Caretta et al,
                                                  California population, and is the only                  off central California. Two separate                  2015). The population size of the ENP
                                                  stock to occur near the action area. The                stocks of northern fur seals are                      gray whale stock has increased over
                                                                                                          recognized within U.S. waters: An                     several decades despite an UME in 1999
                                                  current abundance estimate for this
                                                                                                          Eastern Pacific stock and a California                and 2000 and has been relatively stable
                                                  stock is 179,000 animals, with PBR at
                                                                                                          stock (including San Miguel Island and                since the mid-1990s. Interactions with
                                                  4,882 animals (Caretta et al 2015). The
                                                                                                          the Farallon Islands). Only the                       fisheries, ship strikes, entanglement in
                                                  population is reported to have grown at
                                                                                                          California breeding stock is considered               marine debris, and habitat degradation
                                                  3.8% annually since 1988 (Lowry et al.
                                                                                                          here since it is the only stock to occur              are the main concerns for the gray whale
                                                  2014). Fishery interactions and marine
                                                                                                          near the action area. The current                     population (Caretta et al 2015). This
                                                  debris entanglement are the biggest
                                                                                                          abundance estimate for this stock is                  stock is not listed under the ESA, and
                                                  threats to this species (Caretta et al
                                                                                                          14,050 and PBR is set at 451 animals                  is not considered a strategic stock or
                                                  2015). Northern elephant seals are not
                                                                                                          (Caretta et al 2015). This stock has                  designated as depleted under the
                                                  listed under the Endangered Species                     grown exponentially during the past                   MMPA.
                                                  Act, nor are they designated as depleted,               several years. Interaction with fisheries
                                                  or considered strategic under the                                                                             Bottlenose Dolphin
                                                                                                          remains the top threat to this species
                                                  MMPA.                                                   (Caretta et al, 2015). This stock is not                Bottlenose dolphins are distributed
                                                     Northern elephant seals are common                   considered depleted or classified as                  worldwide in tropical and warm-
                                                  on California coastal mainland and                      strategic under the MMPA, and is not                  temperate waters. In many regions,
                                                  island sites where they pup, breed, rest,               listed under the ESA.                                 including California, separate coastal
                                                  and molt. The largest rookeries are on                                                                        and offshore populations are known
                                                  San Nicolas and San Miguel islands in                   Harbor Porpoise                                       (Walker 1981; Ross and Cockcroft 1990;
                                                  the Northern Channel Islands. In the                       In the Pacific, harbor porpoise are                Van Waerebeek et al. 1990). There are
                                                  vicinity of San Francisco Bay, elephant                 found in coastal and inland waters from               genetic differences between the
                                                  seals breed, molt, and haul out at Año                 Point Conception, California to Alaska                populations; based on nuclear and
                                                  Nuevo Island, the Farallon Islands, and                 and across to Kamchatka and Japan                     mtDNA analyses, there are no shared
                                                  Point Reyes National Seashore (Lowry et                 (Gaskin 1984). Harbor porpoise appear                 haplotypes between coastal and offshore
                                                  al., 2014). Adults reside in offshore                   to have more restricted movements                     animals and significant genetic
                                                  pelagic waters when not breeding or                     along the western coast of the                        differentiation between the two
                                                  molting. Northern elephant seals haul                   continental U.S. than along the eastern               ecotypes was evident (Caretta et al
                                                  out to give birth and breed from                        coast. Regional differences in pollutant              2008). California coastal bottlenose
                                                  December through March, and pups                        residues in harbor porpoise indicate that             dolphins are found within about one
                                                  remain onshore or in adjacent shallow                   they do not move extensively between                  kilometer of shore (Hansen, 1990;
                                                  water through May, when they may                        California, Oregon, and Washington                    Carretta et al. 1998; Defran and Weller
                                                  occasionally make brief stops in San                    (Calambokidis and Barlow 1991). That                  1999) primarily from Point Conception
                                                  Francisco Bay (Caltrans, 2015b). The                    study also showed some regional                       south into Mexican waters, at least as far
                                                  most recent sighting was in 2012 on the                 differences within California (Allen and              south as San Quintin, Mexico.
                                                  beach at Clipper Cove on Treasure                       Angliss, 2014). Of the 10 stocks of                   Oceanographic events appear to
                                                  Island, when a healthy yearling                         Pacific harbor porpoise, only the San                 influence the distribution of animals
                                                  elephant seal hauled out for                            Francisco-Russian River stock is                      along the coasts of California and Baja
                                                  approximately one day. Approximately                    considered here since it is the only                  California, Mexico, as indicated by El
                                                  100 juvenile northern elephant seals                    stock to occur near the action area. This             Niño events. There are three stocks of
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                                                  strand in San Francisco Bay each year,                  current abundance estimate for this                   bottlenose dolphins in the Pacific: (1)
                                                  including individual strandings at Yerba                stock is 9,886 animals, with a PBR of 66              California coastal stock, (2) California,
                                                  Buena Island and Treasure Island (fewer                 animals (Caretta et al 2015). Current                 Oregon, and Washington offshore stock,
                                                  than 10 strandings per year) (Caltrans,                 population trends are not available for               and (3) Hawaiian stock. Only the
                                                  2015b). When pups of the year return in                 this stock. The main threats to this stock            California coastal stock may occur in the
                                                  the late summer and fall to haul out at                 include fishery interactions. This stock              action area. The current stock
                                                  rookery sites, they may also                            is not designated as strategic or                     abundance estimate for the California


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                                                  33224                       Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices

                                                  coastal stock is 323 animals, with PBR                  the sound force per unit area), sound is              breaking waves and wave-induced
                                                  at 2.4 animals (Caretta et al 2008).                    referenced in the context of underwater               bubble oscillations and cavitation, are a
                                                  Pollutant levels in California are a threat             sound pressure to 1 microPascal (mPa).                main source of naturally occurring
                                                  to this species, and this stock may be                  One pascal is the pressure resulting                  ambient noise for frequencies between
                                                  vulnerable to disease outbreaks,                        from a force of one newton exerted over               200 Hz and 50 kHz (Mitson, 1995). In
                                                  particularly morbillivirus (Caretta et al               an area of one square meter. The source               general, ambient sound levels tend to
                                                  2008). This stock is not listed under the               level (SL) represents the sound level at              increase with increasing wind speed
                                                  ESA, and is not considered strategic or                 a distance of 1 m from the source                     and wave height. Surf noise becomes
                                                  designated as depleted under the                        (referenced to 1 mPa). The received level             important near shore, with
                                                  MMPA.                                                   is the sound level at the listener’s                  measurements collected at a distance of
                                                                                                          position. Note that all underwater sound              8.5 km from shore showing an increase
                                                  Potential Effects of the Specified
                                                                                                          levels in this document are referenced                of 10 dB in the 100 to 700 Hz band
                                                  Activity on Marine Mammals and Their
                                                                                                          to a pressure of 1 mPa and all airborne               during heavy surf conditions.
                                                  Habitat                                                                                                          • Precipitation: Sound from rain and
                                                                                                          sound levels in this document are
                                                    This section includes a summary and                   referenced to a pressure of 20 mPa.                   hail impacting the water surface can
                                                  discussion of the ways that components                     Root mean square (rms) is the                      become an important component of total
                                                  of the specified activity (e.g., sound                  quadratic mean sound pressure over the                noise at frequencies above 500 Hz, and
                                                  produced by pile driving) may impact                    duration of an impulse. Rms is                        possibly down to 100 Hz during quiet
                                                  marine mammals and their habitat. The                   calculated by squaring all of the sound               times.
                                                  Estimated Take by Incidental                            amplitudes, averaging the squares, and                   • Biological: Marine mammals can
                                                  Harassment section later in this                        then taking the square root of the                    contribute significantly to ambient noise
                                                  document will include a quantitative                    average (Urick, 1983). Rms accounts for               levels, as can some fish and shrimp. The
                                                  analysis of the number of individuals                   both positive and negative values;                    frequency band for biological
                                                  that are expected to be taken by this                   squaring the pressures makes all values               contributions is from approximately 12
                                                  activity. The Negligible Impact Analysis                positive so that they may be accounted                Hz to over 100 kHz.
                                                  section will include an analysis of how                 for in the summation of pressure levels                  • Anthropogenic: Sources of ambient
                                                  this specific activity will impact marine               (Hastings and Popper, 2005). This                     noise related to human activity include
                                                  mammals and will consider the content                   measurement is often used in the                      transportation (surface vessels and
                                                  of this section, the Estimated Take by                  context of discussing behavioral effects,             aircraft), dredging and construction, oil
                                                  Incidental Harassment section and the                   in part because behavioral effects,                   and gas drilling and production, seismic
                                                  Proposed Mitigation section to draw                     which often result from auditory cues,                surveys, sonar, explosions, and ocean
                                                  conclusions regarding the likely impacts                may be better expressed through                       acoustic studies. Shipping noise
                                                  of this activity on the reproductive                    averaged units than by peak pressures.                typically dominates the total ambient
                                                  success or survivorship of individuals                     When underwater objects vibrate or                 noise for frequencies between 20 and
                                                  and from that on the affected marine                    activity occurs, sound-pressure waves                 300 Hz. In general, the frequencies of
                                                  mammal populations or stocks. In the                    are created. These waves alternately                  anthropogenic sounds are below 1 kHz
                                                  following discussion, we provide                        compress and decompress the water as                  and, if higher frequency sound levels
                                                  general background information on                       the sound wave travels. Underwater                    are created, they attenuate rapidly
                                                  sound and marine mammal hearing                         sound waves radiate in all directions                 (Richardson et al., 1995). Sound from
                                                  before considering potential effects to                 away from the source (similar to ripples              identifiable anthropogenic sources other
                                                  marine mammals from sound produced                      on the surface of a pond), except in                  than the activity of interest (e.g., a
                                                  by vibratory and impact pile driving.                   cases where the source is directional.                passing vessel) is sometimes termed
                                                                                                          The compressions and decompressions                   background sound, as opposed to
                                                  Description of Sound Sources
                                                                                                          associated with sound waves are                       ambient sound.
                                                     Sound travels in waves, the basic                    detected as changes in pressure by                       The sum of the various natural and
                                                  components of which are frequency,                      aquatic life and man-made sound                       anthropogenic sound sources at any
                                                  wavelength, velocity, and amplitude.                    receptors such as hydrophones.                        given location and time—which
                                                  Frequency is the number of pressure                        Even in the absence of sound from the              comprise ‘‘ambient’’ or ‘‘background’’
                                                  waves that pass by a reference point per                specified activity, the underwater                    sound—depends not only on the source
                                                  unit of time and is measured in hertz                   environment is typically loud due to                  levels (as determined by current
                                                  (Hz) or cycles per second. Wavelength is                ambient sound. Ambient sound is                       weather conditions and levels of
                                                  the distance between two peaks of a                     defined as environmental background                   biological and shipping activity) but
                                                  sound wave; lower frequency sounds                      sound levels lacking a single source or               also on the ability of sound to propagate
                                                  have longer wavelengths than higher                     point (Richardson et al., 1995), and the              through the environment. In turn, sound
                                                  frequency sounds and attenuate                          sound level of a region is defined by the             propagation is dependent on the
                                                  (decrease) more rapidly in shallower                    total acoustical energy being generated               spatially and temporally varying
                                                  water. Amplitude is the height of the                   by known and unknown sources. These                   properties of the water column and sea
                                                  sound pressure wave or the ‘loudness’                   sources may include physical (e.g.,                   floor, and is frequency-dependent. As a
                                                  of a sound and is typically measured                    waves, earthquakes, ice, atmospheric                  result of the dependence on a large
                                                  using the decibel (dB) scale. A dB is the               sound), biological (e.g., sounds                      number of varying factors, ambient
                                                  ratio between a measured pressure (with                 produced by marine mammals, fish, and                 sound levels can be expected to vary
                                                  sound) and a reference pressure (sound                  invertebrates), and anthropogenic sound               widely over both coarse and fine spatial
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                                                  at a constant pressure, established by                  (e.g., vessels, dredging, aircraft,                   and temporal scales. Sound levels at a
                                                  scientific standards). It is a logarithmic              construction). A number of sources                    given frequency and location can vary
                                                  unit that accounts for large variations in              contribute to ambient sound, including                by 10–20 dB from day to day
                                                  amplitude; therefore, relatively small                  the following (Richardson et al., 1995):              (Richardson et al., 1995). The result is
                                                  changes in dB ratings correspond to                        • Wind and waves: The complex                      that, depending on the source type and
                                                  large changes in sound pressure. When                   interactions between wind and water                   its intensity, sound from the specified
                                                  referring to sound pressure levels (SPLs;               surface, including processes such as                  activity may be a negligible addition to


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                                                                              Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices                                              33225

                                                  the local environment or could form a                   rise time). Examples of non-pulsed                    8 kHz (Watkins, 1986; Ketten, 1998;
                                                  distinctive signal that may affect marine               sounds include those produced by                      Houser et al., 2001; Au et al., 2006;
                                                  mammals.                                                vessels, aircraft, machinery operations               Lucifredi and Stein, 2007; Ketten et al.,
                                                     The underwater acoustic environment                  such as drilling or dredging, vibratory               2007; Parks et al., 2007a; Ketten and
                                                  at the ferry terminal is likely to be                   pile driving, and active sonar systems                Mountain, 2009; Tubelli et al., 2012);
                                                  dominated by noise from day-to-day                      (such as those used by the U.S. Navy).                   • Mid-frequency cetaceans (32
                                                  port and vessel activities. This is a                   The duration of such sounds, as                       species of dolphins, six species of larger
                                                  highly industrialized area with high-use                received at a distance, can be greatly                toothed whales, and 19 species of
                                                  from small- to medium-sized vessels,                    extended in a highly reverberant                      beaked and bottlenose whales):
                                                  and larger vessel that use the nearby                   environment.                                          Functional hearing is estimated to occur
                                                  major shipping channel. Underwater                         Impact hammers operate by                          between approximately 150 Hz and 160
                                                  sound levels for water transit vessels,                 repeatedly dropping a heavy piston onto               kHz with best hearing from 10 to less
                                                  which operate throughout the day from                   a pile to drive the pile into the substrate.          than 100 kHz (Johnson, 1967; White,
                                                  the San Francisco Ferry Building ranged                 Sound generated by impact hammers is                  1977; Richardson et al., 1995;
                                                  from 152 dB to 177 dB (WETA, 2003a).                    characterized by rapid rise times and                 Szymanski et al., 1999; Kastelein et al.,
                                                  While there are no current                              high peak levels, a potentially injurious             2003; Finneran et al., 2005a, 2009;
                                                  measurements of ambient noise levels at                 combination (Hastings and Popper,                     Nachtigall et al., 2005, 2008; Yuen et al.,
                                                  the ferry terminal, it is likely that levels            2005). Vibratory hammers install piles                2005; Popov et al., 2007; Au and
                                                  within the basin periodically exceed the                by vibrating them and allowing the                    Hastings, 2008; Houser et al., 2008;
                                                  120 dB threshold and, therefore, that the               weight of the hammer to push them into                Pacini et al., 2010, 2011; Schlundt et al.,
                                                  high levels of anthropogenic activity in                the sediment. Vibratory hammers                       2011);
                                                  the basin create an environment far                     produce significantly less sound than                    • High frequency cetaceans (eight
                                                  different from quieter habitats where                   impact hammers. Peak SPLs may be 180                  species of true porpoises, six species of
                                                  behavioral reactions to sounds around                   dB or greater, but are generally 10 to 20             river dolphins, and members of the
                                                  the 120 dB threshold have been                          dB lower than SPLs generated during                   genera Kogia and Cephalorhynchus;
                                                  observed (e.g., Malme et al., 1984,                     impact pile driving of the same-sized                 now considered to include two
                                                  1988).                                                  pile (Oestman et al., 2009). Rise time is             members of the genus Lagenorhynchus
                                                     In-water construction activities                     slower, reducing the probability and                  on the basis of recent echolocation data
                                                  associated with the project would                       severity of injury, and sound energy is               and genetic data [May-Collado and
                                                  include impact pile driving and                         distributed over a greater amount of                  Agnarsson, 2006; Kyhn et al. 2009,
                                                  vibratory pile driving. The sounds                      time (Nedwell and Edwards, 2002;                      2010; Tougaard et al. 2010]): Functional
                                                  produced by these activities fall into                  Carlson et al., 2005).                                hearing is estimated to occur between
                                                  one of two general sound types: Pulsed                                                                        approximately 200 Hz and 180 kHz
                                                  and non-pulsed (defined in the                          Marine Mammal Hearing                                 (Popov and Supin, 1990a,b; Kastelein et
                                                  following). The distinction between                        Hearing is the most important sensory              al., 2002; Popov et al., 2005);
                                                  these two sound types is important                      modality for marine mammals, and                         • Phocid pinnipeds in Water:
                                                  because they have differing potential to                exposure to sound can have deleterious                Functional hearing is estimated to occur
                                                  cause physical effects, particularly with               effects. To appropriately assess these                between approximately 75 Hz and 100
                                                  regard to hearing (e.g., Ward, 1997 in                  potential effects, it is necessary to                 kHz with best hearing between 1–50
                                                  Southall et al., 2007). Please see                      understand the frequency ranges marine                kHz (M<hl, 1968; Terhune and Ronald,
                                                  Southall et al., (2007) for an in-depth                 mammals are able to hear. Current data                1971, 1972; Richardson et al., 1995;
                                                  discussion of these concepts.                           indicate that not all marine mammal                   Kastak and Schusterman, 1999;
                                                     Pulsed sound sources (e.g.,                          species have equal hearing capabilities               Reichmuth, 2008; Kastelein et al., 2009);
                                                  explosions, gunshots, sonic booms,                      (e.g., Richardson et al., 1995; Wartzok               and
                                                  impact pile driving) produce signals                    and Ketten, 1999; Au and Hastings,                       Otariid pinnipeds in Water:
                                                  that are brief (typically considered to be              2008). To reflect this, Southall et al.               Functional hearing is estimated to occur
                                                  less than one second), broadband, atonal                (2007) recommended that marine                        between approximately 100 Hz and 48
                                                  transients (ANSI, 1986; Harris, 1998;                   mammals be divided into functional                    kHz, with best hearing between 2–48
                                                  NIOSH, 1998; ISO, 2003; ANSI, 2005)                     hearing groups based on measured or                   kHz (Schusterman et al., 1972; Moore
                                                  and occur either as isolated events or                  estimated hearing ranges on the basis of              and Schusterman, 1987; Babushina et
                                                  repeated in some succession. Pulsed                     available behavioral data, audiograms                 al., 1991; Richardson et al., 1995; Kastak
                                                  sounds are all characterized by a                       derived using auditory evoked potential               and Schusterman, 1998; Kastelein et al.,
                                                  relatively rapid rise from ambient                      techniques, anatomical modeling, and                  2005a; Mulsow and Reichmuth, 2007;
                                                  pressure to a maximal pressure value                    other data. The lower and/or upper                    Mulsow et al., 2011a, b).
                                                  followed by a rapid decay period that                   frequencies for some of these functional                 The pinniped functional hearing
                                                  may include a period of diminishing,                    hearing groups have been modified from                group was modified from Southall et al.
                                                  oscillating maximal and minimal                         those designated by Southall et al.                   (2007) on the basis of data indicating
                                                  pressures, and generally have an                        (2007). The functional groups and the                 that phocid species have consistently
                                                  increased capacity to induce physical                   associated frequencies are indicated                  demonstrated an extended frequency
                                                  injury as compared with sounds that                     below (note that these frequency ranges               range of hearing compared to otariids,
                                                  lack these features.                                    do not necessarily correspond to the                  especially in the higher frequency range
                                                     Non-pulsed sounds can be tonal,                      range of best hearing, which varies by                (Hemilä et al., 2006; Kastelein et al.,
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                                                  narrowband, or broadband, brief or                      species):                                             2009; Reichmuth et al., 2013).
                                                  prolonged, and may be either                               • Low frequency cetaceans (13                         As mentioned previously in this
                                                  continuous or non-continuous (ANSI,                     species of mysticetes): Functional                    document, seven marine mammal
                                                  1995; NIOSH, 1998). Some of these non-                  hearing is estimated to occur between                 species (three cetaceans and four
                                                  pulsed sounds can be transient signals                  approximately 7 Hz and 25 kHz (up to                  pinnipeds) may occur in the project
                                                  of short duration but without the                       30 kHz in some species), with best                    area. Of these three cetaceans, one is
                                                  essential properties of pulses (e.g., rapid             hearing estimated to be from 100 Hz to                classified as a low-frequency cetacean


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                                                  33226                       Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices

                                                  (i.e. gray whale), one is classified as a               responsiveness. Third is a zone within                driving pulses as received close to the
                                                  mid-frequency cetacean (i.e., bottlenose                which, for signals of high intensity, the             source) are at least 6 dB higher than the
                                                  dolphin), and one is classified as a high-              received level is sufficient to potentially           TTS threshold on a peak-pressure basis
                                                  frequency cetaceans (i.e., harbor                       cause discomfort or tissue damage to                  and PTS cumulative sound exposure
                                                  porpoise) (Southall et al., 2007).                      auditory or other systems. Overlaying                 level thresholds are 15 to 20 dB higher
                                                  Additionally, harbor seals, Northern fur                these zones to a certain extent is the                than TTS cumulative sound exposure
                                                  seals, and Northern elephant seals are                  area within which masking (i.e., when a               level thresholds (Southall et al., 2007).
                                                  classified as members of the phocid                     sound interferes with or masks the                    Given the higher level of sound or
                                                  pinnipeds in water functional hearing                   ability of an animal to detect a signal of            longer exposure duration necessary to
                                                  group while California sea lions are                    interest that is above the absolute                   cause PTS as compared with TTS, it is
                                                  grouped under the Otariid pinnipeds in                  hearing threshold) may occur; the                     considerably less likely that PTS could
                                                  water functional hearing group. A                       masking zone may be highly variable in                occur.
                                                  species’ functional hearing group is a                  size.                                                    Non-auditory physiological effects or
                                                  consideration when we analyze the                          We describe the more severe effects                injuries that theoretically might occur in
                                                  effects of exposure to sound on marine                  (i.e., permanent hearing impairment,                  marine mammals exposed to high level
                                                  mammals.                                                certain non-auditory physical or                      underwater sound or as a secondary
                                                                                                          physiological effects) only briefly as we             effect of extreme behavioral reactions
                                                  Acoustic Impacts                                        do not expect that there is a reasonable              (e.g., change in dive profile as a result
                                                     Please refer to the information given                likelihood that WETA’s activities may                 of an avoidance reaction) caused by
                                                  previously (Description of Sound                        result in such effects (see below for                 exposure to sound include neurological
                                                  Sources) regarding sound,                               further discussion). Marine mammals                   effects, bubble formation, resonance
                                                  characteristics of sound types, and                     exposed to high-intensity sound, or to                effects, and other types of organ or
                                                  metrics used in this document.                          lower-intensity sound for prolonged                   tissue damage (Cox et al., 2006; Southall
                                                  Anthropogenic sounds cover a broad                      periods, can experience hearing                       et al., 2007; Zimmer and Tyack, 2007).
                                                  range of frequencies and sound levels                   threshold shift (TS), which is the loss of            WETA’s activities do not involve the
                                                  and can have a range of highly variable                 hearing sensitivity at certain frequency              use of devices such as explosives or
                                                  impacts on marine life, from none or                    ranges (Kastak et al., 1999; Schlundt et              mid-frequency active sonar that are
                                                  minor to potentially severe responses,                  al., 2000; Finneran et al., 2002, 2005b).             associated with these types of effects.
                                                  depending on received levels, duration                  TS can be permanent (PTS), in which
                                                  of exposure, behavioral context, and                                                                             When a live or dead marine mammal
                                                                                                          case the loss of hearing sensitivity is not
                                                  various other factors. The potential                                                                          swims or floats onto shore and is
                                                                                                          fully recoverable, or temporary (TTS), in
                                                  effects of underwater sound from active                                                                       incapable of returning to sea, the event
                                                                                                          which case the animal’s hearing
                                                  acoustic sources can potentially result                                                                       is termed a ‘‘stranding’’ (16 U.S.C.
                                                                                                          threshold would recover over time
                                                  in one or more of the following:                                                                              1421h(3)). Marine mammals are known
                                                                                                          (Southall et al., 2007). Repeated sound
                                                  Temporary or permanent hearing                                                                                to strand for a variety of reasons, such
                                                                                                          exposure that leads to TTS could cause
                                                  impairment, non-auditory physical or                    PTS. In severe cases of PTS, there can                as infectious agents, biotoxicosis,
                                                  physiological effects, behavioral                       be total or partial deafness, while in                starvation, fishery interaction, ship
                                                  disturbance, stress, and masking                        most cases the animal has an impaired                 strike, unusual oceanographic or
                                                  (Richardson et al., 1995; Gordon et al.,                ability to hear sounds in specific                    weather events, sound exposure, or
                                                  2004; Nowacek et al., 2007; Southall et                 frequency ranges (Kryter, 1985).                      combinations of these stressors
                                                  al., 2007; Gotz et al., 2009). The degree                  When PTS occurs, there is physical                 sustained concurrently or in series (e.g.,
                                                  of effect is intrinsically related to the               damage to the sound receptors in the ear              Geraci et al., 1999). However, the cause
                                                  signal characteristics, received level,                 (i.e., tissue damage), whereas TTS                    or causes of most strandings are
                                                  distance from the source, and duration                  represents primarily tissue fatigue and               unknown (e.g., Best, 1982).
                                                  of the sound exposure. In general,                      is reversible (Southall et al., 2007). In             Combinations of dissimilar stressors
                                                  sudden, high level sounds can cause                     addition, other investigators have                    may combine to kill an animal or
                                                  hearing loss, as can longer exposures to                suggested that TTS is within the normal               dramatically reduce its fitness, even
                                                  lower level sounds. Temporary or                        bounds of physiological variability and               though one exposure without the other
                                                  permanent loss of hearing will occur                    tolerance and does not represent                      would not be expected to produce the
                                                  almost exclusively for noise within an                  physical injury (e.g., Ward, 1997).                   same outcome (e.g., Sih et al., 2004). For
                                                  animal’s hearing range. We first describe               Therefore, NMFS does not consider TTS                 further description of stranding events
                                                  specific manifestations of acoustic                     to constitute auditory injury.                        see, e.g., Southall et al., 2006; Jepson et
                                                  effects before providing discussion                        Relationships between TTS and PTS                  al., 2013; Wright et al., 2013.
                                                  specific to WETA’s construction                         thresholds have not been studied in                      1. Temporary threshold shift—TTS is
                                                  activities.                                             marine mammals—PTS data exists only                   the mildest form of hearing impairment
                                                     Richardson et al. (1995) described                   for a single harbor seal (Kastak et al.,              that can occur during exposure to sound
                                                  zones of increasing intensity of effect                 2008)—but are assumed to be similar to                (Kryter, 1985). While experiencing TTS,
                                                  that might be expected to occur, in                     those in humans and other terrestrial                 the hearing threshold rises, and a sound
                                                  relation to distance from a source and                  mammals. PTS typically occurs at                      must be at a higher level in order to be
                                                  assuming that the signal is within an                   exposure levels at least several decibels             heard. In terrestrial and marine
                                                  animal’s hearing range. First is the area               above (a 40-dB threshold shift                        mammals, TTS can last from minutes or
                                                  within which the acoustic signal would                  approximates PTS onset; e.g., Kryter et               hours to days (in cases of strong TTS).
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                                                  be audible (potentially perceived) to the               al., 1966; Miller, 1974) that inducing                In many cases, hearing sensitivity
                                                  animal, but not strong enough to elicit                 mild TTS (a 6-dB threshold shift                      recovers rapidly after exposure to the
                                                  any overt behavioral or physiological                   approximates TTS onset; e.g., Southall                sound ends. Few data on sound levels
                                                  response. The next zone corresponds                     et al. 2007). Based on data from                      and durations necessary to elicit mild
                                                  with the area where the signal is audible               terrestrial mammals, a precautionary                  TTS have been obtained for marine
                                                  to the animal and of sufficient intensity               assumption is that the PTS thresholds                 mammals, and none of the data
                                                  to elicit behavioral or physiological                   for impulse sounds (such as impact pile               published at the time of this writing


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                                                                              Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices                                              33227

                                                  concern TTS elicited by exposure to                     current activity, reproductive state,                 behavior or moving a small distance, the
                                                  multiple pulses of sound.                               auditory sensitivity, time of day), as                impacts of the change are unlikely to be
                                                     Marine mammal hearing plays a                        well as the interplay between factors                 significant to the individual, let alone
                                                  critical role in communication with                     (e.g., Richardson et al., 1995; Wartzok et            the stock or population. However, if a
                                                  conspecifics, and interpretation of                     al., 2003; Southall et al., 2007; Weilgart,           sound source displaces marine
                                                  environmental cues for purposes such                    2007; Archer et al., 2010). Behavioral                mammals from an important feeding or
                                                  as predator avoidance and prey capture.                 reactions can vary not only among                     breeding area for a prolonged period,
                                                  Depending on the degree (elevation of                   individuals but also within an                        impacts on individuals and populations
                                                  threshold in dB), duration (i.e., recovery              individual, depending on previous                     could be significant (e.g., Lusseau and
                                                  time), and frequency range of TTS, and                  experience with a sound source,                       Bejder, 2007; Weilgart, 2007; NRC,
                                                  the context in which it is experienced,                 context, and numerous other factors                   2005). However, there are broad
                                                  TTS can have effects on marine                          (Ellison et al., 2012), and can vary                  categories of potential response, which
                                                  mammals ranging from discountable to                    depending on characteristics associated               we describe in greater detail here, that
                                                  serious. For example, a marine mammal                   with the sound source (e.g., whether it               include alteration of dive behavior,
                                                  may be able to readily compensate for                   is moving or stationary, number of                    alteration of foraging behavior, effects to
                                                  a brief, relatively small amount of TTS                 sources, distance from the source).                   breathing, interference with or alteration
                                                  in a non-critical frequency range that                  Please see Appendices B–C of Southall                 of vocalization, avoidance, and flight.
                                                  occurs during a time where ambient                      et al. (2007) for a review of studies                    Changes in dive behavior can vary
                                                  noise is lower and there are not as many                involving marine mammal behavioral                    widely, and may consist of increased or
                                                  competing sounds present.                               responses to sound.                                   decreased dive times and surface
                                                  Alternatively, a larger amount and                         Habituation can occur when an                      intervals as well as changes in the rates
                                                  longer duration of TTS sustained during                 animal’s response to a stimulus wanes                 of ascent and descent during a dive (e.g.,
                                                  time when communication is critical for                 with repeated exposure, usually in the                Frankel and Clark, 2000; Costa et al.,
                                                  successful mother/calf interactions                     absence of unpleasant associated events               2003; Ng and Leung, 2003; Nowacek et
                                                  could have more serious impacts.                        (Wartzok et al., 2003). Animals are most              al.; 2004; Goldbogen et al., 2013a,b).
                                                     Currently, TTS data only exist for four              likely to habituate to sounds that are                Variations in dive behavior may reflect
                                                  species of cetaceans (bottlenose                        predictable and unvarying. It is                      interruptions in biologically significant
                                                  dolphin, beluga whale [Delphinapterus                   important to note that habituation is                 activities (e.g., foraging) or they may be
                                                  leucas], harbor porpoise, and Yangtze                   appropriately considered as a                         of little biological significance. The
                                                  finless porpoise [Neophocoena                           ‘‘progressive reduction in response to                impact of an alteration to dive behavior
                                                  asiaeorientalis]) and three species of                  stimuli that are perceived as neither                 resulting from an acoustic exposure
                                                  pinnipeds (northern elephant seal,                      aversive nor beneficial,’’ rather than as,            depends on what the animal is doing at
                                                  harbor seal, and California sea lion)                   more generally, moderation in response                the time of the exposure and the type
                                                  exposed to a limited number of sound                    to human disturbance (Bejder et al.,                  and magnitude of the response.
                                                  sources (i.e., mostly tones and octave-                 2009). The opposite process is                           Disruption of feeding behavior can be
                                                  band noise) in laboratory settings (e.g.,               sensitization, when an unpleasant                     difficult to correlate with anthropogenic
                                                  Finneran et al., 2002; Nachtigall et al.,               experience leads to subsequent                        sound exposure, so it is usually inferred
                                                  2004; Kastak et al., 2005; Lucke et al.,                responses, often in the form of                       by observed displacement from known
                                                  2009; Popov et al., 2011). In general,                  avoidance, at a lower level of exposure.              foraging areas, the appearance of
                                                  harbor seals (Kastak et al., 2005;                      As noted, behavioral state may affect the             secondary indicators (e.g., bubble nets
                                                  Kastelein et al., 2012a) and harbor                     type of response. For example, animals                or sediment plumes), or changes in dive
                                                  porpoises (Lucke et al., 2009; Kastelein                that are resting may show greater                     behavior. As for other types of
                                                  et al., 2012b) have a lower TTS onset                   behavioral change in response to                      behavioral response, the frequency,
                                                  than other measured pinniped or                         disturbing sound levels than animals                  duration, and temporal pattern of signal
                                                  cetacean species. Additionally, the                     that are highly motivated to remain in                presentation, as well as differences in
                                                  existing marine mammal TTS data come                    an area for feeding (Richardson et al.,               species sensitivity, are likely
                                                  from a limited number of individuals                    1995; NRC, 2003; Wartzok et al., 2003).               contributing factors to differences in
                                                  within these species. There are no data                 Controlled experiments with captive                   response in any given circumstance
                                                  available on noise-induced hearing loss                 marine mammals have showed                            (e.g., Croll et al., 2001; Nowacek et al.;
                                                  for mysticetes. For summaries of data on                pronounced behavioral reactions,                      2004; Madsen et al., 2006; Yazvenko et
                                                  TTS in marine mammals or for further                    including avoidance of loud sound                     al., 2007). A determination of whether
                                                  discussion of TTS onset thresholds,                     sources (Ridgway et al., 1997; Finneran               foraging disruptions incur fitness
                                                  please see Southall et al. (2007) and                   et al., 2003). Observed responses of wild             consequences would require
                                                  Finneran and Jenkins (2012).                            marine mammals to loud pulsed sound                   information on or estimates of the
                                                     2. Behavioral effects—Behavioral                     sources (typically seismic airguns or                 energetic requirements of the affected
                                                  disturbance may include a variety of                    acoustic harassment devices) have been                individuals and the relationship
                                                  effects, including subtle changes in                    varied but often consist of avoidance                 between prey availability, foraging effort
                                                  behavior (e.g., minor or brief avoidance                behavior or other behavioral changes                  and success, and the life history stage of
                                                  of an area or changes in vocalizations),                suggesting discomfort (Morton and                     the animal.
                                                  more conspicuous changes in similar                     Symonds, 2002; see also Richardson et                    Variations in respiration naturally
                                                  behavioral activities, and more                         al., 1995; Nowacek et al., 2007).                     vary with different behaviors and
                                                  sustained and/or potentially severe                        Available studies show wide variation              alterations to breathing rate as a
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                                                  reactions, such as displacement from or                 in response to underwater sound;                      function of acoustic exposure can be
                                                  abandonment of high-quality habitat.                    therefore, it is difficult to predict                 expected to co-occur with other
                                                  Behavioral responses to sound are                       specifically how any given sound in a                 behavioral reactions, such as a flight
                                                  highly variable and context-specific and                particular instance might affect marine               response or an alteration in diving.
                                                  any reactions depend on numerous                        mammals perceiving the signal. If a                   However, respiration rates in and of
                                                  intrinsic and extrinsic factors (e.g.,                  marine mammal does react briefly to an                themselves may be representative of
                                                  species, state of maturity, experience,                 underwater sound by changing its                      annoyance or an acute stress response.


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                                                  33228                       Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices

                                                  Various studies have shown that                         marine mammals to anthropogenic                          3. Stress responses—An animal’s
                                                  respiration rates may either be                         signals exist, although observations of               perception of a threat may be sufficient
                                                  unaffected or could increase, depending                 flight responses to the presence of                   to trigger stress responses consisting of
                                                  on the species and signal characteristics,              predators have occurred (Connor and                   some combination of behavioral
                                                  again highlighting the importance in                    Heithaus, 1996). The result of a flight               responses, autonomic nervous system
                                                  understanding species differences in the                response could range from brief,                      responses, neuroendocrine responses, or
                                                  tolerance of underwater noise when                      temporary exertion and displacement                   immune responses (e.g., Seyle, 1950;
                                                  determining the potential for impacts                   from the area where the signal provokes               Moberg, 2000). In many cases, an
                                                  resulting from anthropogenic sound                      flight to, in extreme cases, marine                   animal’s first and sometimes most
                                                  exposure (e.g., Kastelein et al., 2001,                 mammal strandings (Evans and                          economical (in terms of energetic costs)
                                                  2005b, 2006; Gailey et al., 2007).                      England, 2001). However, it should be                 response is behavioral avoidance of the
                                                     Marine mammals vocalize for                          noted that response to a perceived                    potential stressor. Autonomic nervous
                                                  different purposes and across multiple                  predator does not necessarily invoke                  system responses to stress typically
                                                  modes, such as whistling, echolocation                  flight (Ford and Reeves, 2008), and                   involve changes in heart rate, blood
                                                  click production, calling, and singing.                 whether individuals are solitary or in                pressure, and gastrointestinal activity.
                                                  Changes in vocalization behavior in                     groups may influence the response.                    These responses have a relatively short
                                                  response to anthropogenic noise can                        Behavioral disturbance can also                    duration and may or may not have a
                                                  occur for any of these modes and may                    impact marine mammals in more subtle                  significant long-term effect on an
                                                  result from a need to compete with an                   ways. Increased vigilance may result in               animal’s fitness.
                                                  increase in background noise or may                     costs related to diversion of focus and                  Neuroendocrine stress responses often
                                                  reflect increased vigilance or a startle                attention (i.e., when a response consists             involve the hypothalamus-pituitary-
                                                  response. For example, in the presence                  of increased vigilance, it may come at                adrenal system. Virtually all
                                                  of potentially masking signals,                         the cost of decreased attention to other              neuroendocrine functions that are
                                                  humpback whales and killer whales                       critical behaviors such as foraging or                affected by stress—including immune
                                                  have been observed to increase the                      resting). These effects have generally not            competence, reproduction, metabolism,
                                                  length of their songs (Miller et al., 2000;             been demonstrated for marine                          and behavior—are regulated by pituitary
                                                  Fristrup et al., 2003; Foote et al., 2004),             mammals, but studies involving fish                   hormones. Stress-induced changes in
                                                  while right whales have been observed                   and terrestrial animals have shown that               the secretion of pituitary hormones have
                                                  to shift the frequency content of their                 increased vigilance may substantially                 been implicated in failed reproduction,
                                                  calls upward while reducing the rate of                 reduce feeding rates (e.g., Beauchamp                 altered metabolism, reduced immune
                                                  calling in areas of increased                           and Livoreil, 1997; Fritz et al., 2002;               competence, and behavioral disturbance
                                                  anthropogenic noise (Parks et al.,                      Purser and Radford, 2011). In addition,               (e.g., Moberg, 1987; Blecha, 2000).
                                                  2007b). In some cases, animals may                      chronic disturbance can cause                         Increases in the circulation of
                                                  cease sound production during                           population declines through reduction                 glucocorticoids are also equated with
                                                  production of aversive signals (Bowles                  of fitness (e.g., decline in body                     stress (Romano et al., 2004).
                                                  et al., 1994).                                          condition) and subsequent reduction in                   The primary distinction between
                                                     Avoidance is the displacement of an                  reproductive success, survival, or both               stress (which is adaptive and does not
                                                  individual from an area or migration                    (e.g., Harrington and Veitch, 1992; Daan              normally place an animal at risk) and
                                                  path as a result of the presence of a                   et al., 1996; Bradshaw et al., 1998).                 ‘‘distress’’ is the cost of the response.
                                                  sound or other stressors, and is one of                 However, Ridgway et al. (2006) reported               During a stress response, an animal uses
                                                  the most obvious manifestations of                      that increased vigilance in bottlenose                glycogen stores that can be quickly
                                                  disturbance in marine mammals                           dolphins exposed to sound over a five-                replenished once the stress is alleviated.
                                                  (Richardson et al., 1995). For example,                 day period did not cause any sleep                    In such circumstances, the cost of the
                                                  gray whales are known to change                         deprivation or stress effects.                        stress response would not pose serious
                                                  direction—deflecting from customary                        Many animals perform vital functions,              fitness consequences. However, when
                                                  migratory paths—in order to avoid noise                 such as feeding, resting, traveling, and              an animal does not have sufficient
                                                  from seismic surveys (Malme et al.,                     socializing, on a diel cycle (24-hour                 energy reserves to satisfy the energetic
                                                  1984). Avoidance may be short-term,                     cycle). Disruption of such functions                  costs of a stress response, energy
                                                  with animals returning to the area once                 resulting from reactions to stressors                 resources must be diverted from other
                                                  the noise has ceased (e.g., Bowles et al.,              such as sound exposure are more likely                functions. This state of distress will last
                                                  1994; Goold, 1996; Stone et al., 2000;                  to be significant if they last more than              until the animal replenishes its
                                                  Morton and Symonds, 2002; Gailey et                     one diel cycle or recur on subsequent                 energetic reserves sufficient to restore
                                                  al., 2007). Longer-term displacement is                 days (Southall et al., 2007).                         normal function.
                                                  possible, however, which may lead to                    Consequently, a behavioral response                      Relationships between these
                                                  changes in abundance or distribution                    lasting less than one day and not                     physiological mechanisms, animal
                                                  patterns of the affected species in the                 recurring on subsequent days is not                   behavior, and the costs of stress
                                                  affected region if habituation to the                   considered particularly severe unless it              responses are well-studied through
                                                  presence of the sound does not occur                    could directly affect reproduction or                 controlled experiments and for both
                                                  (e.g., Blackwell et al., 2004; Bejder et al.,           survival (Southall et al., 2007). Note that           laboratory and free-ranging animals
                                                  2006; Teilmann et al., 2006).                           there is a difference between multi-day               (e.g., Holberton et al., 1996; Hood et al.,
                                                     A flight response is a dramatic change               substantive behavioral reactions and                  1998; Jessop et al., 2003; Krausman et
                                                  in normal movement to a directed and                    multi-day anthropogenic activities. For               al., 2004; Lankford et al., 2005). Stress
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                                                  rapid movement away from the                            example, just because an activity lasts               responses due to exposure to
                                                  perceived location of a sound source.                   for multiple days does not necessarily                anthropogenic sounds or other stressors
                                                  The flight response differs from other                  mean that individual animals are either               and their effects on marine mammals
                                                  avoidance responses in the intensity of                 exposed to activity-related stressors for             have also been reviewed (Fair and
                                                  the response (e.g., directed movement,                  multiple days or, further, exposed in a               Becker, 2000; Romano et al., 2002b)
                                                  rate of travel). Relatively little                      manner resulting in sustained multi-day               and, more rarely, studied in wild
                                                  information on flight responses of                      substantive behavioral responses.                     populations (e.g., Romano et al., 2002a).


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                                                                              Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices                                               33229

                                                  For example, Rolland et al. (2012) found                likely to affect detection of mysticete               primarily from acoustic pathways. As
                                                  that noise reduction from reduced ship                  communication calls and other                         such, the degree of effect is intrinsically
                                                  traffic in the Bay of Fundy was                         potentially important natural sounds                  related to the frequency, received level,
                                                  associated with decreased stress in                     such as those produced by surf and                    and duration of the sound exposure,
                                                  North Atlantic right whales. These and                  some prey species. The masking of                     which are in turn influenced by the
                                                  other studies lead to a reasonable                      communication signals by                              distance between the animal and the
                                                  expectation that some marine mammals                    anthropogenic noise may be considered                 source. The further away from the
                                                  will experience physiological stress                    as a reduction in the communication                   source, the less intense the exposure
                                                  responses upon exposure to acoustic                     space of animals (e.g., Clark et al., 2009)           should be. The substrate and depth of
                                                  stressors and that it is possible that                  and may result in energetic or other                  the habitat affect the sound propagation
                                                  some of these would be classified as                    costs as animals change their                         properties of the environment. In
                                                  ‘‘distress.’’ In addition, any animal                   vocalization behavior (e.g., Miller et al.,           addition, substrates that are soft (e.g.,
                                                  experiencing TTS would likely also                      2000; Foote et al., 2004; Parks et al.,               sand) would absorb or attenuate the
                                                  experience stress responses (NRC,                       2007b; Di Iorio and Clark, 2009; Holt et              sound more readily than hard substrates
                                                  2003).                                                  al., 2009). Masking can be reduced in                 (e.g., rock) which may reflect the
                                                     4. Auditory masking—Sound can                        situations where the signal and noise                 acoustic wave. Soft porous substrates
                                                  disrupt behavior through masking, or                    come from different directions                        would also likely require less time to
                                                  interfering with, an animal’s ability to                (Richardson et al., 1995), through                    drive the pile, and possibly less forceful
                                                  detect, recognize, or discriminate                      amplitude modulation of the signal, or                equipment, which would ultimately
                                                  between acoustic signals of interest (e.g.,             through other compensatory behaviors                  decrease the intensity of the acoustic
                                                  those used for intraspecific                            (Houser and Moore, 2014). Masking can                 source.
                                                  communication and social interactions,                  be tested directly in captive species                    In the absence of mitigation, impacts
                                                  prey detection, predator avoidance,                     (e.g., Erbe, 2008), but in wild                       to marine species could be expected to
                                                  navigation) (Richardson et al., 1995).                  populations it must be either modeled                 include physiological and behavioral
                                                  Masking occurs when the receipt of a                    or inferred from evidence of masking                  responses to the acoustic signature
                                                  sound is interfered with by another                     compensation. There are few studies                   (Viada et al., 2008). Potential effects
                                                  coincident sound at similar frequencies                 addressing real-world masking sounds                  from impulsive sound sources like pile
                                                  and at similar or higher intensity, and                 likely to be experienced by marine                    driving can range in severity from
                                                  may occur whether the sound is natural                  mammals in the wild (e.g., Branstetter et             effects such as behavioral disturbance to
                                                  (e.g., snapping shrimp, wind, waves,                    al., 2013).                                           temporary or permanent hearing
                                                  precipitation) or anthropogenic (e.g.,                     Masking affects both senders and                   impairment (Yelverton et al., 1973).
                                                  shipping, sonar, seismic exploration) in                receivers of acoustic signals and can                    Hearing Impairment and Other
                                                  origin. The ability of a noise source to                potentially have long-term chronic                    Physical Effects—Marine mammals
                                                  mask biologically important sounds                      effects on marine mammals at the                      exposed to high intensity sound
                                                  depends on the characteristics of both                  population level as well as at the                    repeatedly or for prolonged periods can
                                                  the noise source and the signal of                      individual level. Low-frequency                       experience hearing threshold shifts. PTS
                                                  interest (e.g., signal-to-noise ratio,                  ambient sound levels have increased by                constitutes injury, but TTS does not
                                                  temporal variability, direction), in                    as much as 20 dB (more than three times               (Southall et al., 2007). Based on the best
                                                  relation to each other and to an animal’s               in terms of SPL) in the world’s ocean                 scientific information available, the
                                                  hearing abilities (e.g., sensitivity,                   from pre-industrial periods, with most                SPLs for the construction activities in
                                                  frequency range, critical ratios,                       of the increase from distant commercial               this project are far below the thresholds
                                                  frequency discrimination, directional                   shipping (Hildebrand, 2009). All                      that could cause TTS or the onset of
                                                  discrimination, age or TTS hearing loss),               anthropogenic sound sources, but                      PTS: 180 dB re 1 mPa rms for
                                                  and existing ambient noise and                          especially chronic and lower-frequency                odontocetes and 190 dB re 1 mPa rms for
                                                  propagation conditions.                                 signals (e.g., from vessel traffic),                  pinnipeds (Table 4).
                                                     Under certain circumstances, marine                  contribute to elevated ambient sound                     Non-auditory Physiological Effects—
                                                  mammals experiencing significant                        levels, thus intensifying masking.                    Non-auditory physiological effects or
                                                  masking could also be impaired from                                                                           injuries that theoretically might occur in
                                                  maximizing their performance fitness in                 Acoustic Effects, Underwater                          marine mammals exposed to strong
                                                  survival and reproduction. Therefore,                     Potential Effects of Pile Driving                   underwater sound include stress,
                                                  when the coincident (masking) sound is                  Sound—The effects of sounds from pile                 neurological effects, bubble formation,
                                                  man-made, it may be considered                          driving might include one or more of                  resonance effects, and other types of
                                                  harassment when disrupting or altering                  the following: temporary or permanent                 organ or tissue damage (Cox et al., 2006;
                                                  critical behaviors. It is important to                  hearing impairment, non-auditory                      Southall et al., 2007). Studies examining
                                                  distinguish TTS and PTS, which persist                  physical or physiological effects,                    such effects are limited. In general, little
                                                  after the sound exposure, from masking,                 behavioral disturbance, and masking                   is known about the potential for pile
                                                  which occurs during the sound                           (Richardson et al., 1995; Gordon et al.,              driving to cause auditory impairment or
                                                  exposure. Because masking (without                      2003; Nowacek et al., 2007; Southall et               other physical effects in marine
                                                  resulting in TS) is not associated with                 al., 2007). The effects of pile driving on            mammals. Available data suggest that
                                                  abnormal physiological function, it is                  marine mammals are dependent on                       such effects, if they occur at all, would
                                                  not considered a physiological effect,                  several factors, including the type and               presumably be limited to short distances
                                                  but rather a potential behavioral effect.               depth of the animal; the pile size and                from the sound source and to activities
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                                                     The frequency range of the potentially               type, and the intensity and duration of               that extend over a prolonged period.
                                                  masking sound is important in                           the pile driving sound; the substrate; the            The available data do not allow
                                                  determining any potential behavioral                    standoff distance between the pile and                identification of a specific exposure
                                                  impacts. For example, low-frequency                     the animal; and the sound propagation                 level above which non-auditory effects
                                                  signals may have less effect on high-                   properties of the environment. Impacts                can be expected (Southall et al., 2007)
                                                  frequency echolocation sounds                           to marine mammals from pile driving                   or any meaningful quantitative
                                                  produced by odontocetes but are more                    activities are expected to result                     predictions of the numbers (if any) of


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                                                  33230                       Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices

                                                  marine mammals that might be affected                     • Longer-term habitat abandonment                   sounds that would result in harassment
                                                  in those ways. Marine mammals that                      due to loss of desirable acoustic                     as defined under the MMPA.
                                                  show behavioral avoidance of pile                       environment; and                                         Airborne noise will primarily be an
                                                  driving, including some odontocetes                       • Longer-term cessation of feeding or               issue for pinnipeds that are swimming
                                                  and some pinnipeds, are especially                      social interaction.                                   or hauled out near the project site
                                                  unlikely to incur auditory impairment                     The onset of behavioral disturbance                 within the range of noise levels elevated
                                                  or non-auditory physical effects.                       from anthropogenic sound depends on                   above the acoustic criteria in Table 4.
                                                                                                          both external factors (characteristics of             We recognize that pinnipeds in the
                                                  Disturbance Reactions                                                                                         water could be exposed to airborne
                                                                                                          sound sources and their paths) and the
                                                                                                          specific characteristics of the receiving             sound that may result in behavioral
                                                     Responses to continuous sound, such
                                                                                                          animals (hearing, motivation,                         harassment when looking with heads
                                                  as vibratory pile installation, have not                                                                      above water. Most likely, airborne
                                                  been documented as well as responses                    experience, demography) and is difficult
                                                                                                          to predict (Southall et al., 2007).                   sound would cause behavioral
                                                  to pulsed sounds. With both types of                                                                          responses similar to those discussed
                                                  pile driving, it is likely that the onset of            Auditory Masking                                      above in relation to underwater sound.
                                                  pile driving could result in temporary,                                                                       For instance, anthropogenic sound
                                                  short term changes in an animal’s                          Natural and artificial sounds can
                                                                                                          disrupt behavior by masking. The                      could cause hauled-out pinnipeds to
                                                  typical behavior and/or avoidance of the                                                                      exhibit changes in their normal
                                                  affected area. These behavioral changes                 frequency range of the potentially
                                                                                                          masking sound is important in                         behavior, such as reduction in
                                                  may include (Richardson et al., 1995):                                                                        vocalizations, or cause them to
                                                  changing durations of surfacing and                     determining any potential behavioral
                                                                                                          impacts. Because sound generated from                 temporarily abandon the area and move
                                                  dives, number of blows per surfacing, or                                                                      further from the source. However, these
                                                  moving direction and/or speed;                          in-water pile driving is mostly
                                                                                                          concentrated at low frequency ranges, it              animals would previously have been
                                                  reduced/increased vocal activities;                                                                           ‘taken’ as a result of exposure to
                                                  changing/cessation of certain behavioral                may have less effect on high frequency
                                                                                                          echolocation sounds made by porpoises.                underwater sound above the behavioral
                                                  activities (such as socializing or                                                                            harassment thresholds, which are in all
                                                  feeding); visible startle response or                   The most intense underwater sounds in
                                                                                                                                                                cases larger than those associated with
                                                  aggressive behavior (such as tail/fluke                 the proposed action are those produced
                                                                                                                                                                airborne sound. Thus, the behavioral
                                                  slapping or jaw clapping); avoidance of                 by impact pile driving. Given that the
                                                                                                                                                                harassment of these animals is already
                                                  areas where sound sources are located;                  energy distribution of pile driving
                                                                                                                                                                accounted for in these estimates of
                                                  and/or flight responses (e.g., pinnipeds                covers a broad frequency spectrum,
                                                                                                                                                                potential take. Multiple instances of
                                                  flushing into water from haul-outs or                   sound from these sources would likely
                                                                                                                                                                exposure to sound above NMFS’
                                                  rookeries). Pinnipeds may increase their                be within the audible range of marine
                                                                                                                                                                thresholds for behavioral harassment are
                                                  haul-out time, possibly to avoid in-                    mammals present in the project area.
                                                                                                                                                                not believed to result in increased
                                                  water disturbance (Thorson and Reyff,                   Impact pile driving activity is relatively
                                                                                                                                                                behavioral disturbance, in either nature
                                                  2006). If a marine mammal responds to                   short-term, with rapid pulses occurring               or intensity of disturbance reaction.
                                                  a stimulus by changing its behavior                     for approximately fifteen minutes per                 Therefore, we do not believe that
                                                  (e.g., through relatively minor changes                 pile. The probability for impact pile                 authorization of incidental take
                                                  in locomotion direction/speed or                        driving resulting from this proposed                  resulting from airborne sound for
                                                  vocalization behavior), the response                    action masking acoustic signals                       pinnipeds is warranted, and airborne
                                                  may or may not constitute taking at the                 important to the behavior and survival                sound is not discussed further here.
                                                  individual level, and is unlikely to                    of marine mammal species is low.
                                                                                                          Vibratory pile driving is also relatively             Anticipated Effects on Habitat
                                                  affect the stock or the species as a
                                                  whole. However, if a sound source                       short-term, with rapid oscillations                      The proposed activities at the Ferry
                                                  displaces marine mammals from an                        occurring for approximately one and a                 Terminal would not result in permanent
                                                  important feeding or breeding area for a                half hours per pile. It is possible that              negative impacts to habitats used
                                                  prolonged period, impacts on animals,                   vibratory pile driving resulting from this            directly by marine mammals, but may
                                                  and if so potentially on the stock or                   proposed action may mask acoustic                     have potential short-term impacts to
                                                  species, could potentially be significant               signals important to the behavior and                 food sources such as forage fish and
                                                  (e.g., Lusseau and Bejder, 2007;                        survival of marine mammal species, but                may affect acoustic habitat (see masking
                                                  Weilgart, 2007).                                        the short-term duration and limited                   discussion above). There are no known
                                                                                                          affected area would result in                         foraging hotspots or other ocean bottom
                                                     The biological significance of many of               insignificant impacts from masking.                   structure of significant biological
                                                  these behavioral disturbances is difficult              Any masking event that could possibly                 importance to marine mammals present
                                                  to predict, especially if the detected                  rise to Level B harassment under the                  in the marine waters of the project area.
                                                  disturbances appear minor. However,                     MMPA would occur concurrently                         Therefore, the main impact issue
                                                  the consequences of behavioral                          within the zones of behavioral                        associated with the proposed activity
                                                  modification could be expected to be                    harassment already estimated for                      would be temporarily elevated sound
                                                  biologically significant if the change                  vibratory and impact pile driving, and                levels and the associated direct effects
                                                  affects growth, survival, or                            which have already been taken into                    on marine mammals, as discussed
                                                  reproduction. Significant behavioral                    account in the exposure analysis.                     previously in this document. The
                                                  modifications that could potentially                       Acoustic Effects, Airborne—Pinnipeds               primary potential acoustic impacts to
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                                                  lead to effects on growth, survival, or                 that occur near the project site could be             marine mammal habitat are associated
                                                  reproduction include:                                   exposed to airborne sounds associated                 with elevated sound levels produced by
                                                     • Drastic changes in diving/surfacing                with pile driving that have the potential             vibratory and impact pile driving and
                                                  patterns (such as those thought to cause                to cause behavioral harassment,                       removal in the area. However, other
                                                  beaked whale stranding due to exposure                  depending on their distance from pile                 potential impacts to the surrounding
                                                  to military mid-frequency tactical                      driving activities. Cetaceans are not                 habitat from physical disturbance are
                                                  sonar);                                                 expected to be exposed to airborne                    also possible.


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                                                                              Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices                                              33231

                                                  Pile Driving Effects on Potential Prey                  cause significant or long-term                        activities, regardless of the estimated
                                                  (Fish)                                                  consequences for individual marine                    zone. Vibratory pile driving activities
                                                     Construction activities would produce                mammals or their populations.                         are not predicted to produce sound
                                                  continuous (i.e., vibratory pile driving                                                                      exceeding the 180/190-dB Level A
                                                                                                          Proposed Mitigation
                                                  sounds and pulsed (i.e. impact driving)                                                                       harassment threshold, but these
                                                                                                             In order to issue an IHA under section             precautionary measures are intended to
                                                  sounds. Fish react to sounds that are                   101(a)(5)(D) of the MMPA, NMFS must
                                                  especially strong and/or intermittent                                                                         prevent the already unlikely possibility
                                                                                                          set forth the permissible methods of                  of physical interaction with
                                                  low-frequency sounds. Short duration,                   taking pursuant to such activity, and                 construction equipment and to further
                                                  sharp sounds can cause overt or subtle                  other means of effecting the least                    reduce any possibility of acoustic
                                                  changes in fish behavior and local                      practicable impact on such species or                 injury.
                                                  distribution. Hastings and Popper (2005)                stock and its habitat, paying particular                 Disturbance Zone—Disturbance zones
                                                  identified several studies that suggest                 attention to rookeries, mating grounds,               are the areas in which SPLs equal or
                                                  fish may relocate to avoid certain areas                and areas of similar significance, and on             exceed 160 and 120 dB rms (for impulse
                                                  of sound energy. Additional studies                     the availability of such species or stock             and continuous sound, respectively).
                                                  have documented effects of pile driving                 for taking for certain subsistence uses.              Disturbance zones provide utility for
                                                  on fish, although several are based on                     Measurements from similar pile                     monitoring conducted for mitigation
                                                  studies in support of large, multiyear                  driving events were coupled with                      purposes (i.e., shutdown zone
                                                  bridge construction projects (e.g.,                     practical spreading loss to estimate                  monitoring) by establishing monitoring
                                                  Scholik and Yan, 2001, 2002; Popper                     zones of influence (ZOI; see Estimated                protocols for areas adjacent to the
                                                  and Hastings, 2009). Sound pulses at                    Take by Incidental Harassment); these                 shutdown zones. Monitoring of
                                                  received levels of 160 dB may cause                     values were used to develop mitigation                disturbance zones enables observers to
                                                  subtle changes in fish behavior. SPLs of                measures for pile driving activities at               be aware of and communicate the
                                                  180 dB may cause noticeable changes in                  the ferry terminal. The ZOIs effectively              presence of marine mammals in the
                                                  behavior (Pearson et al., 1992; Skalski et              represent the mitigation zone that                    project area but outside the shutdown
                                                  al., 1992). SPLs of sufficient strength                 would be established around each pile                 zone and thus prepare for potential
                                                  have been known to cause injury to fish                 to prevent Level A harassment to marine               shutdowns of activity. However, the
                                                  and fish mortality.                                     mammals, while providing estimates of                 primary purpose of disturbance zone
                                                     The most likely impact to fish from                  the areas within which Level B                        monitoring is for documenting instances
                                                  pile driving activities at the project area             harassment might occur. In addition to                of Level B harassment; disturbance zone
                                                  would be temporary behavioral                           the specific measures described later in              monitoring is discussed in greater detail
                                                  avoidance of the area. The duration of                  this section, WETA would conduct                      later (see Proposed Monitoring and
                                                  fish avoidance of this area after pile                  briefings between construction                        Reporting). Nominal radial distances for
                                                  driving stops is unknown, but a rapid                   supervisors and crews, marine mammal                  disturbance zones are shown in Table 6.
                                                  return to normal recruitment,                           monitoring team, and WETA staff prior                 Given the size of the disturbance zone
                                                  distribution and behavior is anticipated.               to the start of all pile driving activity,            for vibratory pile driving, it is
                                                  In general, impacts to marine mammal                    and when new personnel join the work,                 impossible to guarantee that all animals
                                                  prey species are expected to be minor                   in order to explain responsibilities,                 would be observed or to make
                                                  and temporary due to the short                          communication procedures, marine                      comprehensive observations of fine-
                                                  timeframe for the project.                              mammal monitoring protocol, and                       scale behavioral reactions to sound, and
                                                  Pile Driving Effects on Potential                       operational procedures.                               only a portion of the zone (e.g., what
                                                  Foraging Habitat                                        Monitoring and Shutdown for Pile                      may be reasonably observed by visual
                                                                                                                                                                observers stationed within the turning
                                                     The area likely impacted by the                      Driving
                                                                                                                                                                basin) would be observed.
                                                  project is relatively small compared to                   The following measures would apply                     In order to document observed
                                                  the available habitat in San Francisco                  to WETA’s mitigation through                          instances of harassment, monitors
                                                  Bay. Avoidance by potential prey (i.e.,                 shutdown and disturbance zones:                       record all marine mammal observations,
                                                  fish) of the immediate area due to the                    Shutdown Zone—For all pile driving                  regardless of location. The observer’s
                                                  temporary loss of this foraging habitat is              activities, WETA will establish a                     location, as well as the location of the
                                                  also possible. The duration of fish                     shutdown zone intended to contain the                 pile being driven, is known from a GPS.
                                                  avoidance of this area after pile driving               area in which SPLs equal or exceed the                The location of the animal is estimated
                                                  stops is unknown, but a rapid return to                 180/190 dB rms acoustic injury criteria               as a distance from the observer, which
                                                  normal recruitment, distribution and                    for cetaceans and pinnipeds,                          is then compared to the location from
                                                  behavior is anticipated. Any behavioral                 respectively. The purpose of a                        the pile. It may then be estimated
                                                  avoidance by fish of the disturbed area                 shutdown zone is to define an area                    whether the animal was exposed to
                                                  would still leave significantly large                   within which shutdown of activity                     sound levels constituting incidental
                                                  areas of fish and marine mammal                         would occur upon sighting of a marine                 harassment on the basis of predicted
                                                  foraging habitat in the San Francisco                   mammal (or in anticipation of an animal               distances to relevant thresholds in post-
                                                  ferry terminal and nearby vicinity.                     entering the defined area), thus                      processing of observational and acoustic
                                                     In summary, given the short daily                    preventing injury of marine mammals                   data, and a precise accounting of
                                                  duration of sound associated with                       (as described previously under Potential              observed incidences of harassment
                                                  individual pile driving events and the                  Effects of the Specified Activity on                  created. This information may then be
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                                                  relatively small areas being affected,                  Marine Mammals, serious injury or                     used to extrapolate observed takes to
                                                  pile driving activities associated with                 death are unlikely outcomes even in the               reach an approximate understanding of
                                                  the proposed action are not likely to                   absence of mitigation measures).                      actual total takes.
                                                  have a permanent, adverse effect on any                 Modeled radial distances for shutdown                    Monitoring Protocols—Monitoring
                                                  fish habitat, or populations of fish                    zones are shown in Table 6. However,                  would be conducted before, during, and
                                                  species. Thus, any impacts to marine                    a minimum shutdown zone of 10 m will                  after pile driving activities. In addition,
                                                  mammal habitat are not expected to                      be established during all pile driving                observers shall record all instances of


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                                                  33232                       Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices

                                                  marine mammal occurrence, regardless                       • Ability to communicate orally, by                strikes from the impact hammer at
                                                  of distance from activity, and shall                    radio or in person, with project                      reduced energy, followed by a thirty-
                                                  document any behavioral reactions in                    personnel to provide real-time                        second waiting period, then two
                                                  concert with distance from piles being                  information on marine mammals                         subsequent three strike sets. Soft start
                                                  driven. Observations made outside the                   observed in the area as necessary.                    will be required at the beginning of each
                                                  shutdown zone will not result in                           (2) Prior to the start of pile driving             day’s impact pile driving work and at
                                                  shutdown; that pile segment would be                    activity, the shutdown zone will be                   any time following a cessation of impact
                                                  completed without cessation, unless the                 monitored for fifteen minutes to ensure               pile driving of thirty minutes or longer.
                                                  animal approaches or enters the                         that it is clear of marine mammals. Pile                 We have carefully evaluated WETA’s
                                                  shutdown zone, at which point all pile                  driving will only commence once                       proposed mitigation measures and
                                                  driving activities would be halted.                     observers have declared the shutdown                  considered their effectiveness in past
                                                  Monitoring will take place from fifteen                 zone clear of marine mammals; animals                 implementation to preliminarily
                                                  minutes prior to initiation through                     will be allowed to remain in the                      determine whether they are likely to
                                                  thirty minutes post-completion of pile                  shutdown zone (i.e., must leave of their              effect the least practicable impact on the
                                                  driving activities. Pile driving activities             own volition) and their behavior will be              affected marine mammal species and
                                                  include the time to install or remove a                 monitored and documented. The                         stocks and their habitat. Our evaluation
                                                  single pile or series of piles, as long as              shutdown zone may only be declared                    of potential measures included
                                                  the time elapsed between uses of the                    clear, and pile driving started, when the             consideration of the following factors in
                                                  pile driving equipment is no more than                  entire shutdown zone is visible (i.e.,                relation to one another: (1) The manner
                                                  thirty minutes. Please see the                          when not obscured by dark, rain, fog,                 in which, and the degree to which, the
                                                  Monitoring Plan (www.nmfs.noaa.gov/                     etc.). In addition, if such conditions                successful implementation of the
                                                  pr/permits/incidental/                                  should arise during impact pile driving               measure is expected to minimize
                                                  construction.htm), developed by WETA                    that is already underway, the activity                adverse impacts to marine mammals, (2)
                                                  in agreement with NMFS, for full details                would be halted.                                      the proven or likely efficacy of the
                                                  of the monitoring protocols.                               (3) If a marine mammal approaches or               specific measure to minimize adverse
                                                     The following additional measures                    enters the shutdown zone during the                   impacts as planned; and (3) the
                                                  apply to visual monitoring:                             course of pile driving operations,                    practicability of the measure for
                                                     (1) Monitoring will be conducted by                  activity will be halted and delayed until             applicant implementation.
                                                  qualified observers, who will be placed                 either the animal has voluntarily left                   Any mitigation measure(s) we
                                                  at the best vantage point(s) practicable                and been visually confirmed beyond the                prescribe should be able to accomplish,
                                                  to monitor for marine mammals and                       shutdown zone or fifteen minutes have                 have a reasonable likelihood of
                                                  implement shutdown/delay procedures                     passed without re-detection of the                    accomplishing (based on current
                                                  when applicable by calling for the                      animal. Monitoring will be conducted                  science), or contribute to the
                                                  shutdown to the hammer operator.                        throughout the time required to drive a               accomplishment of one or more of the
                                                  Qualified observers are typically trained               pile.                                                 general goals listed below:
                                                  biologists, with the following minimum                     (4) Using delay and shut-down                         (1) Avoidance or minimization of
                                                  qualifications:                                         procedures, if a species for which                    injury or death of marine mammals
                                                     • Visual acuity in both eyes                         authorization has not been granted                    wherever possible (goals 2, 3, and 4 may
                                                  (correction is permissible) sufficient for              (including but not limited to Guadalupe               contribute to this goal).
                                                  discernment of moving targets at the                    fur seals and humpback whales) or if a                   (2) A reduction in the number (total
                                                  water’s surface with ability to estimate                species for which authorization has                   number or number at biologically
                                                  target size and distance; use of                        been granted but the authorized takes                 important time or location) of
                                                  binoculars may be necessary to correctly                are met, approaches or is observed                    individual marine mammals exposed to
                                                  identify the target;                                    within the Level B harassment zone,                   stimuli expected to result in incidental
                                                     • Experience and ability to conduct                  activities will shut down immediately                 take (this goal may contribute to 1,
                                                  field observations and collect data                     and not restart until the animals have                above, or to reducing takes by
                                                  according to assigned protocols (this                   been confirmed to have left the area.                 behavioral harassment only).
                                                  may include academic experience);                                                                                (3) A reduction in the number (total
                                                                                                          Soft Start
                                                     • Experience or training in the field                                                                      number or number at biologically
                                                  identification of marine mammals,                          The use of a soft start procedure is               important time or location) of times any
                                                  including the identification of                         believed to provide additional                        individual marine mammal would be
                                                  behaviors;                                              protection to marine mammals by                       exposed to stimuli expected to result in
                                                     • Sufficient training, orientation, or               warning or providing a chance to leave                incidental take (this goal may contribute
                                                  experience with the construction                        the area prior to the hammer operating                to 1, above, or to reducing takes by
                                                  operation to provide for personal safety                at full capacity, and typically involves              behavioral harassment only).
                                                  during observations;                                    a requirement to initiate sound from the                 (4) A reduction in the intensity of
                                                     • Writing skills sufficient to prepare a             hammer at reduced energy followed by                  exposure to stimuli expected to result in
                                                  report of observations including but not                a waiting period. This procedure is                   incidental take (this goal may contribute
                                                  limited to the number and species of                    repeated two additional times. It is                  to 1, above, or to reducing the severity
                                                  marine mammals observed; dates and                      difficult to specify the reduction in                 of behavioral harassment only).
                                                  times when in-water construction                        energy for any given hammer because of                   (5) Avoidance or minimization of
                                                  activities were conducted; dates and                    variation across drivers and, for impact              adverse effects to marine mammal
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                                                  times when in-water construction                        hammers, the actual number of strikes at              habitat, paying particular attention to
                                                  activities were suspended to avoid                      reduced energy will vary because                      the prey base, blockage or limitation of
                                                  potential incidental injury from                        operating the hammer at less than full                passage to or from biologically
                                                  construction sound of marine mammals                    power results in ‘‘bouncing’’ of the                  important areas, permanent destruction
                                                  observed within a defined shutdown                      hammer as it strikes the pile, resulting              of habitat, or temporary disturbance of
                                                  zone; and marine mammal behavior;                       in multiple ‘‘strikes.’’ For impact                   habitat during a biologically important
                                                  and                                                     driving, we require an initial set of three           time.


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                                                                              Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices                                              33233

                                                     (6) For monitoring directly related to                 WETA’s proposed monitoring and                      following information be collected on
                                                  mitigation, an increase in the                          reporting is also described in their                  the sighting forms:
                                                  probability of detecting marine                         Marine Mammal Monitoring Plan, on                        • Date and time that monitored
                                                  mammals, thus allowing for more                         the Internet at www.nmfs.noaa.gov/pr/                 activity begins or ends;
                                                  effective implementation of the                         permits/incidental/construction.htm.                     • Construction activities occurring
                                                  mitigation.                                                                                                   during each observation period;
                                                                                                          Visual Marine Mammal Observations                        • Weather parameters (e.g., percent
                                                     Based on our evaluation of WETA’s
                                                  proposed measures, as well as any other                    WETA will collect sighting data and                cover, visibility);
                                                  potential measures that may be relevant                 behavioral responses to construction for                 • Water conditions (e.g., sea state,
                                                  to the specified activity, we have                      marine mammal species observed in the                 tide state);
                                                                                                          region of activity during the period of                  • Species, numbers, and, if possible,
                                                  preliminarily determined that the
                                                                                                          activity. All observers (MMOs) will be                sex and age class of marine mammals;
                                                  proposed mitigation measures provide                                                                             • Description of any observable
                                                  the means of effecting the least                        trained in marine mammal
                                                                                                          identification and behaviors and are                  marine mammal behavior patterns,
                                                  practicable impact on marine mammal                                                                           including bearing and direction of
                                                  species or stocks and their habitat,                    required to have no other construction-
                                                                                                          related tasks while conducting                        travel, and if possible, the correlation to
                                                  paying particular attention to rookeries,                                                                     SPLs;
                                                  mating grounds, and areas of similar                    monitoring. WETA will monitor the
                                                                                                                                                                   • Distance from pile driving activities
                                                  significance.                                           shutdown zone and disturbance zone
                                                                                                                                                                to marine mammals and distance from
                                                                                                          before, during, and after pile driving,
                                                  Proposed Monitoring and Reporting                                                                             the marine mammals to the observation
                                                                                                          with observers located at the best
                                                                                                                                                                point;
                                                     In order to issue an IHA for an                      practicable vantage points. Based on our                 • Description of implementation of
                                                  activity, section 101(a)(5)(D) of the                   requirements, WETA would implement                    mitigation measures (e.g., shutdown or
                                                  MMPA states that NMFS must set forth                    the following procedures for pile                     delay);
                                                  ‘‘requirements pertaining to the                        driving:                                                 • Locations of all marine mammal
                                                  monitoring and reporting of such                           • MMOs would be located at the best                observations; and
                                                  taking.’’ The MMPA implementing                         vantage point(s) in order to properly see                • Other human activity in the area.
                                                  regulations at 50 CFR 216.104 (a)(13)                   the entire shutdown zone and as much
                                                                                                          of the disturbance zone as possible.                  Reporting
                                                  indicate that requests for incidental take
                                                  authorizations must include the                            • During all observation periods,                     A draft report would be submitted to
                                                  suggested means of accomplishing the                    observers will use binoculars and the                 NMFS within 90 days of the completion
                                                  necessary monitoring and reporting that                 naked eye to search continuously for                  of marine mammal monitoring, or sixty
                                                  will result in increased knowledge of                   marine mammals.                                       days prior to the requested date of
                                                  the species and of the level of taking or                  • If the shutdown zones are obscured               issuance of any future IHA for projects
                                                  impacts on populations of marine                        by fog or poor lighting conditions, pile              at the same location, whichever comes
                                                  mammals that are expected to be                         driving at that location will not be                  first. The report will include marine
                                                  present in the proposed action area.                    initiated until that zone is visible.                 mammal observations pre-activity,
                                                                                                          Should such conditions arise while                    during-activity, and post-activity during
                                                     Any monitoring requirement we
                                                                                                          impact driving is underway, the activity              pile driving days, and will also provide
                                                  prescribe should improve our
                                                                                                          would be halted.                                      descriptions of any behavioral responses
                                                  understanding of one or more of the
                                                                                                             • The shutdown and disturbance                     to construction activities by marine
                                                  following:
                                                                                                          zones around the pile will be monitored               mammals and a complete description of
                                                     • Occurrence of marine mammal                        for the presence of marine mammals
                                                  species in action area (e.g., presence,                                                                       all mitigation shutdowns and the results
                                                                                                          before, during, and after any pile driving            of those actions and an extrapolated
                                                  abundance, distribution, density).                      or removal activity.
                                                     • Nature, scope, or context of likely                                                                      total take estimate based on the number
                                                                                                             Individuals implementing the                       of marine mammals observed during the
                                                  marine mammal exposure to potential                     monitoring protocol will assess its
                                                  stressors/impacts (individual or                                                                              course of construction. A final report
                                                                                                          effectiveness using an adaptive                       must be submitted within thirty days
                                                  cumulative, acute or chronic), through                  approach. The monitoring biologists
                                                  better understanding of: (1) Action or                                                                        following resolution of comments on the
                                                                                                          will use their best professional                      draft report.
                                                  environment (e.g., source                               judgment throughout implementation
                                                  characterization, propagation, ambient                  and seek improvements to these                        Estimated Take by Incidental
                                                  noise); (2) Affected species (e.g., life                methods when deemed appropriate.                      Harassment
                                                  history, dive patterns); (3) Co-                        Any modifications to protocol will be                    Except with respect to certain
                                                  occurrence of marine mammal species                     coordinated between NMFS and WETA.                    activities not pertinent here, section
                                                  with the action; or (4) Biological or                                                                         3(18) of the MMPA defines
                                                  behavioral context of exposure (e.g., age,              Data Collection
                                                                                                                                                                ‘‘harassment’’ as: ‘‘. . . any act of
                                                  calving or feeding areas).                                We require that observers use                       pursuit, torment, or annoyance which (i)
                                                     • Individual responses to acute                      approved data forms. Among other                      has the potential to injure a marine
                                                  stressors, or impacts of chronic                        pieces of information, WETA will                      mammal or marine mammal stock in the
                                                  exposures (behavioral or physiological).                record detailed information about any                 wild [Level A harassment]; or (ii) has
                                                     • How anticipated responses to                       implementation of shutdowns,                          the potential to disturb a marine
                                                  stressors impact either: (1) Long-term                  including the distance of animals to the
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                                                                                                                                                                mammal or marine mammal stock in the
                                                  fitness and survival of an individual; or               pile and description of specific actions              wild by causing disruption of behavioral
                                                  (2) Population, species, or stock.                      that ensued and resulting behavior of                 patterns, including, but not limited to,
                                                     • Effects on marine mammal habitat                   the animal, if any. In addition, WETA                 migration, breathing, nursing, breeding,
                                                  and resultant impacts to marine                         will attempt to distinguish between the               feeding, or sheltering [Level B
                                                  mammals.                                                number of individual animals taken and                harassment].’’
                                                     • Mitigation and monitoring                          the number of incidences of take. We                     All anticipated takes would be by
                                                  effectiveness.                                          require that, at a minimum, the                       Level B harassment resulting from


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                                                  33234                        Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices

                                                  vibratory and impact pile driving and                    residency or site fidelity and the                        incidental to the specified activity, we
                                                  involving temporary changes in                           impetus to use the site (e.g., because of                 must first estimate the extent of the
                                                  behavior. The proposed mitigation and                    foraging opportunities) is stronger than                  sound field that may be produced by the
                                                  monitoring measures are expected to                      the deterrence presented by the                           activity and then consider in
                                                  minimize the possibility of injurious or                 harassing activity.                                       combination with information about
                                                  lethal takes such that take by Level A                      The area where the ferry terminal is                   marine mammal density or abundance
                                                  harassment, serious injury, or mortality                 located is not considered important                       in the project area. We first provide
                                                  is considered discountable. However, it                  habitat for marine mammals, as it is a                    information on applicable sound
                                                  is unlikely that injurious or lethal takes               highly industrial area with high levels                   thresholds for determining effects to
                                                  would occur even in the absence of the                   of vessel traffic and background noise.                   marine mammals before describing the
                                                  planned mitigation and monitoring                        While there are harbor seal haul outs                     information used in estimating the
                                                  measures.                                                within two miles of the construction                      sound fields, the available marine
                                                     Given the many uncertainties in                       activity at Yerba Buena Island, and a                     mammal density or abundance
                                                  predicting the quantity and types of                     California sea lion haul out                              information, and the method of
                                                  impacts of sound on marine mammals,                      approximately 1.5 miles away at pier 39,                  estimating potential instances of take.
                                                  it is common practice to estimate how                    behavioral disturbances that could
                                                  many animals are likely to be present                    result from anthropogenic sound                           Sound Thresholds
                                                  within a particular distance of a given                  associated with these activities are
                                                  activity, or exposed to a particular level               expected to affect only a relatively small                   We use generic sound exposure
                                                  of sound. In practice, depending on the                  number of individual marine mammals                       thresholds to determine when an
                                                  amount of information available to                       that may venture near the ferry terminal,                 activity that produces sound might
                                                  characterize daily and seasonal                          although those effects could be                           result in impacts to a marine mammal
                                                  movement and distribution of affected                    recurring over the life of the project if                 such that a take by harassment might
                                                  marine mammals, it can be difficult to                   the same individuals remain in the                        occur. These thresholds (Table 4) are
                                                  distinguish between the number of                        project vicinity. WETA has requested                      used to estimate when harassment may
                                                  individuals harassed and the instances                   authorization for the incidental taking of                occur (i.e., when an animal is exposed
                                                  of harassment and, when duration of the                  small numbers of harbor seals, Northern                   to levels equal to or exceeding the
                                                  activity is considered, it can result in a               elephant seals, Norther fur seals,                        relevant criterion) in specific contexts;
                                                  take estimate that overestimates the                     California sea lions, harbor porpoise,                    however, useful contextual information
                                                  number of individuals harassed. In                       bottlenose dolphin, and gray whales                       that may inform our assessment of
                                                  particular, for stationary activities, it is             near the San Francisco Ferry Terminal                     effects is typically lacking and we
                                                  more likely that some smaller number of                  that may result from pile driving during                  consider these thresholds as step
                                                  individuals may accrue a number of                       construction activities associated with                   functions. NMFS is working to revise
                                                  incidences of harassment per individual                  the project described previously in this                  these acoustic guidelines; for more
                                                  than for each incidence to accrue to a                   document.                                                 information on that process, please visit
                                                  new individual, especially if those                         In order to estimate the potential                     www.nmfs.noaa.gov/pr/acoustics/
                                                  individuals display some degree of                       instances of take that may occur                          guidelines.htm.

                                                                                                  TABLE 4—CURRENT ACOUSTIC EXPOSURE CRITERIA
                                                                   Criterion                                 Definition                                                       Threshold

                                                  Level A harassment (underwater) ...         Injury (PTS—any level above that               180 dB (cetaceans)/190 dB (pinnipeds) (rms).
                                                                                                 which is known to cause TTS).
                                                  Level B harassment (underwater) ...         Behavioral disruption .....................    160 dB (impulsive source)/120 dB (continuous source) (rms).
                                                  Level B harassment (airborne) .......       Behavioral disruption .....................    90 dB (harbor seals)/100 dB (other pinnipeds) (unweighted).



                                                  Distance to Sound Thresholds                             This formula neglects loss due to                         source (10*log[range]). A practical
                                                     Underwater Sound Propagation                          scattering and absorption, which is                       spreading value of 15 is often used
                                                  Formula—Pile driving generates                           assumed to be zero here. The degree to                    under conditions, such as at the San
                                                  underwater noise that can potentially                    which underwater sound propagates                         Francisco Ferry Terminal, where water
                                                  result in disturbance to marine                          away from a sound source is dependent                     increases with depth as the receiver
                                                  mammals in the project area.                             on a variety of factors, most notably the                 moves away from the shoreline,
                                                  Transmission loss (TL) is the decrease                   water bathymetry and presence or                          resulting in an expected propagation
                                                  in acoustic intensity as an acoustic                     absence of reflective or absorptive                       environment that would lie between
                                                  pressure wave propagates out from a                      conditions including in-water structures                  spherical and cylindrical spreading loss
                                                  source. TL parameters vary with                          and sediments. Spherical spreading                        conditions. Practical spreading loss (4.5
                                                  frequency, temperature, sea conditions,                  occurs in a perfectly unobstructed (free-                 dB reduction in sound level for each
                                                  current, source and receiver depth,                      field) environment not limited by depth                   doubling of distance) is assumed here.
                                                  water depth, water chemistry, and                        or water surface, resulting in a 6 dB                       Underwater Sound—The intensity of
                                                                                                           reduction in sound level for each                         pile driving sounds is greatly influenced
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                                                  bottom composition and topography.
                                                  The general formula for underwater TL                    doubling of distance from the source                      by factors such as the type of piles,
                                                  is:                                                      (20*log[range]). Cylindrical spreading                    hammers, and the physical environment
                                                                                                           occurs in an environment in which                         in which the activity takes place. A
                                                  TL = B * log10(R1/R2), where
                                                  R1 = the distance of the modeled SPL from                sound propagation is bounded by the                       number of studies, primarily on the
                                                      the driven pile, and                                 water surface and sea bottom, resulting                   west coast, have measured sound
                                                  R2 = the distance from the driven pile of the            in a reduction of 3 dB in sound level for                 produced during underwater pile
                                                      initial measurement.                                 each doubling of distance from the                        driving projects. However, these data


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                                                                                            Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices                                                                                                      33235

                                                  are largely for impact driving of steel                                         pile (Caltrans, 2015a). It is estimated                                        the pile (Nedwell et al., 2005). Based on
                                                  pipe piles and concrete piles as well as                                        that an average of four of these piles                                         these measure levels, vibratory
                                                  vibratory driving of steel pipe piles.                                          would be installed per day. Based on                                           installation of the 14-inch polyurethane-
                                                     In order to determine reasonable SPLs                                        the above sound levels, installation of                                        coated wood-fender piles would not
                                                  and their associated effects on marine                                          the 14-inch plastic-coated wood piles                                          produce noise levels above the Level A
                                                  mammals that are likely to result from                                          would not produce rms values above the                                         190 or 180 dB rms thresholds; however,
                                                  vibratory or impact pile driving at the                                         Level A or Level B thresholds.                                                 the 120 dB RMS Level B threshold
                                                  ferry terminal, we considered existing                                             The best fit data for 24-inch-diameter                                      would be exceeded over a radius of 293
                                                  measurements from similar physical                                              steel shell piles comes from projects                                          meters assuming practical spreading.
                                                  environments (e.g. estuarine areas of                                           completed in Shasta County, California,
                                                  soft substrate where water depths are                                           and the Stockton Marina, Stockton,                                                Approximately 350 wood and
                                                  less than 16 feet).                                                             California (Table 5). For these projects,                                      concrete piles, 12 to 18 inches in
                                                     For 24- and 36-inch steel piles,                                             the typical noise levels for pile-driving                                      diameter, would be removed using a
                                                  projects include the driving of similarly                                       events were 175 dB peak, and 163 dB                                            vibratory pile-driver. With the vibratory
                                                  sized piles at the Alameda Bay Ship and                                         rms at 33 feet (10 meters) (Caltrans,                                          hammer activated, an upward force
                                                  Yacht project; the Rodeo Dock Repair                                            2012).                                                                         would be applied to the pile to remove
                                                  project; and the Amorco Wharf Repair                                               A review of available acoustic data for                                     it from the sediment. On average, 12 of
                                                  project (Table 5). During impact pile-                                          pile driving indicates that Test Pile                                          these piles would be extracted per work
                                                  driving associated with these projects,                                         Program at Naval Base Kitsap at Bangor,                                        day. Extraction time needed for each
                                                  measured sound levels averaged about                                            Washington (Illingsworth and Rodkin,                                           pile may vary greatly, but could require
                                                  193 dB rms at 10m for 36-inch piles,                                            2013) provides the best match data for                                         approximately 400 seconds
                                                  and 190 dB rms at 10m for 24-inch piles                                         vibratory installation of 36-inch piles                                        (approximately 7 minutes) from an APE
                                                  (Caltrans, 2012). Bubble curtains will be                                       (Table 5). For 36-inch-diameter piles                                          400B King Kong or similar driver. The
                                                  used during the installation of these                                           driven by the Navy, the average level for                                      most applicable noise values for
                                                  piles, which is expected to reduce noise                                        all pile-driving events was 159 dB rms                                         wooden pile removal from which to
                                                  levels by about 10 dB rms (Caltrans,                                            at 33 feet (10 meters). There was a                                            base estimates for the terminal
                                                  2015a). Impact driving of these piles                                           considerable range in the rms levels                                           expansion project are derived from
                                                  would produce noise levels above the                                            measured across a pile-driving event;                                          measurements taken at the Port
                                                  Level A 190 dB threshold for pinnipeds                                          with measured values from 147 to 169                                           Townsend dolphin pile removal in the
                                                  over a distance of 11 feet (4 meters) for                                       dB rms, the higher value is used in this                                       State of Washington (Table 5). During
                                                  36-inch piles and over a distance of 7                                          analysis. It is estimated that an average                                      vibratory pile extraction associated with
                                                  feet (2 meters) for 24-inch piles                                               of four of these piles would be extracted                                      this project, measured peak noise levels
                                                  assuming practical spreading. Impact                                            per day of pile driving during the                                             were approximately 164 dB at 16 m, and
                                                  driving of steel piles would exceed the                                         proposed project. Based on the above                                           the rms was approximately 150 dB
                                                  Level A 180 dB threshold for cetaceans                                          sound levels, vibratory installation of                                        (WSDOT, 2011). Applicable sound
                                                  over a distance of 52 feet (16 meters) for                                      the 24- and 36-inch steel pipe piles                                           values for the removal of concrete piles
                                                  36-inch piles, and 33 feet (or 10 meters)                                       would produce rms values above the                                             could not be located, but they are
                                                  for 24-inch piles. It is estimated that an                                      Level A and Level B thresholds (Table                                          expected to be similar to the levels
                                                  average of four of these piles would be                                         6).                                                                            produced by wooden piles described
                                                  installed per day.                                                                 It is estimated that an average of four                                     above, because they are similarly sized,
                                                     Projects conducted under similar                                             14-inch polyurethane-coated wood piles                                         nonmetallic, and will be removed using
                                                  circumstances with similar piles were                                           would be installed per day of pile                                             the same methods. Based on the above
                                                  reviewed to approximate the noise                                               driving. The best match for estimated                                          noise levels, vibratory extraction of the
                                                  effects of the 14-inch wood piles. The                                          noise levels for vibratory driving of                                          timber and concrete piles would not
                                                  best match for estimated noise levels is                                        these piles is from the Hable River in                                         produce noise levels above the Level A
                                                  from the impact driving of timber piles                                         Hampshire, England, where wooden                                               190 dB or 180 dB thresholds. The radius
                                                  at the Port of Benicia (Table 5). Noise                                         piles were installed with this method                                          over which the Level B 120 dB rms
                                                  levels produced during this installation                                        (Table 5). Rms noise levels produced                                           threshold could be exceeded is
                                                  were an average of 170 dB peak, and 158                                         during this installation were on average                                       approximately 1,920 feet (585 meters)
                                                  dB rms at 33 feet (10 meters) from the                                          142 dB rms at 33 feet (10 meters) from                                         assuming practical spreading.
                                                    TABLE 5—UNDERWATER SPLS FROM MONITORED CONSTRUCTION ACTIVITIES USING VIBRATORY AND IMPACT HAMMERS
                                                                                                                                                                                                                              Water depth
                                                                          Project and location                                              Pile size and type                    Hammer type/method                                                      Measured SPLs
                                                                                                                                                                                                                                 (m)

                                                  the Alameda Bay Ship and Yacht project 1 ......................                      40-in Steel pipe ...................     Impact driving ......................         13 .................    195 RMS at 10 m.
                                                  the Rodeo Dock Repair project 1 ......................................               24- in steel pile ....................   Impact driving ......................         5 ...................   189 RMS at 10 m.
                                                  the Amorco Wharf Repair project 1 ...................................                24- in steel pile ....................   Impact driving ......................         >12 ...............     190 RMS at 10 m.
                                                  Port of Benicia 2 ................................................................   Timber pile ..........................   n/a .......................................   11 .................    170 dB RMS at 10 m.
                                                  Shasta County, California 1 ...............................................          24-inch steel pipe piles .......         Vibratory driving ..................          >2 .................    157, 159 RMS at 10 m.
                                                  the Stockton Marina, Stockton, California 1 ......................                   20-inch- steel shell piles .....         Vibratory driving ..................          3 ...................   169, 156 RMS at 10 m.
                                                  Test Pile Program at Naval Base Kitsap at Bangor, WA 3                               36-inch TTP ........................     Vibratory driving ..................          n/a ................    159 dB RMS at 10 m.
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                                                  Hable River in Hampshire, England 4 ...............................                  14-inch polyurethane-coated              Vibratory driving ..................          n/a ................    142 dB RMS at 10 m.
                                                                                                                                         wood piles.
                                                  Port Townsend dolphin pile removal in the State of                                   Dolphin pile .........................   Vibratory extraction .............            5 ...................   150 RMS at 16 m.
                                                    Washington 5.
                                                     1 Caltrans, 2012
                                                     2 Caltrans, 2015a
                                                     3 Illingsworth and Rodkin, 2013
                                                     4 Nedwell, 2015
                                                     5 WSDOT, 2011




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                                                  33236                             Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices

                                                    All calculated distances to, and the                         in excess of the Level A thresholds, but               prevent the already unlikely possibility
                                                  total area encompassed by, the marine                          only within 50 feet (15 meters) of                     of physical interaction with
                                                  mammal sound thresholds are provided                           impact-driving of 36-inch piles. The                   construction equipment and to further
                                                  in Table 6. No physiological responses                         shutdown zone will be equivalent to the                reduce any possibility of acoustic
                                                  are expected from pile-driving                                 area over which Level A harassment                     injury. The disturbance zones will be
                                                  operations occurring during project                            may occur, including the 180 dB re 1                   equivalent to the area over which Level
                                                  construction. Vibratory pile extraction                        mPa (cetaceans) and 190 dB re 1 mPa                    B harassment may occur, including160
                                                  and driving does not generate high-peak                        (pinnipeds) isopleths (Table 6);                       dB re 1 mPa (impact pile driving) and
                                                  sound-pressure levels commonly                                 however, a minimum 10 m shutdown                       120 dB re 1 mPa (vibratory pile driving)
                                                  associated with physiological damage.                          zone will be applied to the these zones                isopleths (Table 6).
                                                  Impact driving can produce noise levels                        as a precautionary measure intended to

                                                               TABLE 6—DISTANCES TO RELEVANT UNDERWATER SOUND THRESHOLDS AND AREAS OF ENSONIFICATION
                                                                                                                                 Source levels                  Distance to threshold (m)                Area for
                                                                        Project element requiring                                at 10 meters                                                            level B
                                                                             pile installation                                                         190 dB            180 dB           160/120 dB    threshold
                                                                                                                                     RMS               RMS 1             RMS 1              RMS 2         (km2)

                                                                                                                   South Basin Pile Demolition and Removal

                                                  18-Inch Wood Piles—Vibratory Driver .................................                    150                   0                <1            1,000          1.27
                                                  18-Inch Concrete Piles—Vibratory Driver ............................                     150                   0                <1            1,000          1.27
                                                  36-Inch Steel Piles—Vibratory Driver ..................................                  170                  <1                 2           18,478         86.52

                                                                             Embarcadero Plaza and East Bayside Promenade and Gates E, F, and G Dolphin and Guide Piles

                                                  36-Inch    Steel   Piles—Vibratory Driver ..................................             169                  <1                 2           18,478         86.52
                                                  36-Inch    Steel   Piles—Impact Driver (BCA)3 .........................                  198                   4                16              341          0.18
                                                  24-Inch    Steel   Piles—Vibratory Driver ..................................             163                   0                 1            7,356         38.07
                                                  24-Inch    Steel   Piles—Impact Driver (BCA) ...........................                 193                   2                10              215          0.09

                                                                                                                                     Fender Piles

                                                  14-Inch Wood Piles—Vibratory Driver .................................                    142                    0                0              293          0.14
                                                  14-Inch Wood Piles—Impact Driver ....................................                    158                    0                0                7             0
                                                     1 For
                                                         underwater noise, the Level A harassment threshold for cetaceans is 180 dB and 190 dB for pinnipeds.
                                                     2 For
                                                         underwater noise, the Level B harassment (disturbance) threshold is 160 dB for impulsive noise and typical ambient levels (120 dB) for
                                                  continuous noise.
                                                    BCA Bubble curtain attenuation will be used during impact driving of steel piles.
                                                    dB decibels.
                                                    RMS root mean square.


                                                  Marine Mammal Densities                                        for each threshold are not spherical and               (density) * Area of ensonification) *
                                                    At-sea densities for marine mammal                           are truncated by land masses on either                 Number of days of noise generating
                                                  species have not be determined in San                          side of the channel which would                        activities.
                                                  Francisco Bay; therefore, estimates here                       dissipate sound pressure waves.                           For all other marine mammal species:
                                                  are determined by using observational                             • Exposures were based on estimated                 Level B exposure estimate = N (number
                                                  data taken during marine mammal                                total of 106 work days. Each activity                  of animals) in the area * Number of days
                                                  monitoring associated with the                                 ranges in amount of days needed to be                  of noise generating activities.
                                                  Richmond-San Rafael Bridge retrofit                            completed (Table 1). Note that impact                     To account for the increase in
                                                  project, the San Francisco-Oakland Bay                         driving is likely to occur only on days                California sea lion density due to El
                                                  Bridge (SFOBB), which has been                                 when vibratory driving occurs.                         Niño, the daily take estimated from the
                                                  ongoing for the past 15 years, and                                • In absence of site specific                       observed density has been increased by
                                                  anecdotal observational reports from                           underwater acoustic propagation                        a factor of 10 for each day that pile
                                                  local entities. It is not currently possible                   modeling, the practical spreading loss                 driving occurs.
                                                  to identify all observed individuals to                        model was used to determine the ZOI.                      There are a number of reasons why
                                                  stock.                                                            • All marine mammal individuals                     estimates of potential instances of take
                                                                                                                 potentially available are assumed to be                may be overestimates of the number of
                                                  Description of Take Calculation                                present within the relevant area, and                  individuals taken, assuming that
                                                     All estimates are conservative and                          thus incidentally taken;                               available density or abundance
                                                  include the following assumptions:                                • An individual can only be taken                   estimates and estimated ZOI areas are
                                                     • All pilings installed at each site                        once during a 24-h period; and,                        accurate. We assume, in the absence of
                                                  would have an underwater noise                                    • Exposures to sound levels at or                   information supporting a more refined
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                                                  disturbance equal to the piling that                           above the relevant thresholds equate to                conclusion, that the output of the
                                                  causes the greatest noise disturbance                          take, as defined by the MMPA.                          calculation represents the number of
                                                  (i.e., the piling farthest from shore)                            The estimation of marine mammal                     individuals that may be taken by the
                                                  installed with the method that has the                         takes typically uses the following                     specified activity. In fact, in the context
                                                  largest ZOI. The largest underwater                            calculation:                                           of stationary activities such as pile
                                                  disturbance ZOI would be produced by                              For harbor seals and California sea                 driving and in areas where resident
                                                  vibratory driving steel piles. The ZOIs                        lions: Level B exposure estimate = D                   animals may be present, this number


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                                                                                        Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices                                                                                        33237

                                                  represents the number of instances of                                         matter of hours on any given day) is                               considered a separate individual
                                                  take that may accrue to a smaller                                             actually spent pile driving. The                                   animal, and especially for pinnipeds.
                                                  number of individuals, with some                                              potential effectiveness of mitigation                                 The quantitative exercise described
                                                  number of animals being exposed more                                          measures in reducing the number of                                 above indicates that no instances of
                                                  than once per individual. While pile                                          takes is typically not quantified in the                           Level A harassment would be expected,
                                                  driving can occur any day throughout                                          take estimation process. For these                                 independent of the implementation of
                                                  the in-water work window, and the                                             reasons, these take estimates may be                               required mitigation measures. See Table
                                                  analysis is conducted on a per day basis,                                     conservative, especially if each take is
                                                  only a fraction of that time (typically a                                                                                                        7 for total estimated instances of take.

                                                                                                          TABLE 7—CALCULATIONS FOR INCIDENTAL TAKE ESTIMATION
                                                                                                                                                                                   Estimated take by level B harassment
                                                                                                                                                                                            (take per day/total)
                                                                                                                                      Number of
                                                                     Pile type                           Pile-driver type              driving                                      Northern
                                                                                                                                        days          Harbor         CA Sea                            Harbor              Gray          Northern     Bottlenose
                                                                                                                                                                                    elephant
                                                                                                                                                       seal           lion 1                          porpoise 2          Whale 2        fur seal 2    dolphin 2
                                                                                                                                                                                      seal 2

                                                                                                                                                     2016 Work Season

                                                  Wood/concrete pile removal ................            Vibratory ..........                30            1/30        10/300             NA                    NA             NA               NA           NA
                                                  36-inch dolphin pile removal ...............           Vibratory ..........                 1           27/26       110/110             NA                    NA             NA               NA           NA
                                                  Embarcadero Plaza .............................        Vibratory 3 ........                65        26/1,690     110/7,150             NA                    NA             NA               NA           NA
                                                  36-inch steel piles OR .........................
                                                  24-inch steel piles ...............................    Vibratory 3 ........                65         12/780        50/3,250            NA                    NA             NA               NA           NA
                                                  14-inch wood pile ................................     Vibratory 3 ........                10           1/10          10/100            NA                    NA             NA               NA           NA

                                                       Project Total (2016) 3 ...................        .........................          106          1,756            7,660            14                      6                2            10           30

                                                                                                                                                     2017 Work Season

                                                  Gate F and G Guide Piles (36-inch                      Vibratory 3     ........            12           1/12             4/48           NA                    NA             NA               NA           NA
                                                   steel).
                                                  Gate E Guide Pile Removal (36-inch                     Vibratory ..........                    6          1/6            4/24           NA                    NA             NA               NA           NA
                                                   steel).
                                                  Gate E Guide Pile Installation (36-inch                Vibratory 3     ........                6          1/6            4/24           NA                    NA             NA               NA           NA
                                                   steel).

                                                       Project Total (2017) .....................        .........................           24           648 4        2,640 4                 4                   6                2            10           30
                                                    11  To account for potential El Niño conditions, take calculated from at-sea densities for California sea lion has been increased by a factor of 10.
                                                    2 Take is not calculated by activity type for these species with a low potential to occur, only a yearly total is given.
                                                    2 Piles of this type may also be installed with an impact hammer, which would reduce the estimated take.
                                                    3 This total assumes that 36-inch steel piles are used for the Embarcadero Plaza.




                                                  Description of Marine Mammals in the                                          for 15 years; from those data, Caltrans                            (Caltrans, 2015b). Using this density, the
                                                  Area of the Specified Activity                                                has produced at-sea density estimates                              potential average daily take for the areas
                                                  Harbor Seals                                                                  for Pacific harbor seal of 0.78 animals                            over which the Level B harassment
                                                                                                                                per square mile (0.3 animals per square                            thresholds may be exceeded are
                                                    Monitoring of marine mammals in the                                         kilometer) for the summer season                                   estimated in Table 8.
                                                  vicinity of the SFOBB has been ongoing
                                                                                                                     TABLE 8—TAKE CALCULATION FOR HARBOR SEAL
                                                                                                                                                                                                                              Area
                                                                       Activity                                                      Pile type                                       Density                                                     Take estimate
                                                                                                                                                                                                                              (km2)

                                                  Vibratory     driving ..............................     24-in steel pile ................................       0.78   (0.3   animal/km2)       ....................                 38.09              780
                                                  Vibratory     driving and extraction ......              36-in steel pile ................................       0.78   (0.3   animal/km2)       ....................                 86.52         1,690; 26
                                                  Vibratory     extraction .........................       Wood and concrete piles ...............                 0.78   (0.3   animal/km2)       ....................                  1.27                30
                                                  Vibratory     driving ..............................     Wood piles .....................................        0.78   (0.3   animal/km2)       ....................                  0.14                10



                                                    A total of 1,756 harbor seal takes are                                      for 15 years; from those data, Caltrans                            (Caltrans, 2015b). Using this density, the
                                                  estimated for 2016 (Table 7).                                                 has produced at-sea density estimates                              potential average daily take for the areas
                                                  California sea lion                                                           for California sea lion of 0.31 animals                            over which the Level B harassment
                                                                                                                                per square mile (0.12 animal per square                            thresholds may be exceeded (Table 10)
                                                    Monitoring of marine mammals in the                                         kilometer) for the summer season                                   is estimated in Table 9.
                                                  vicinity of the SFOBB has been ongoing
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                                                                                                            TABLE 9—TAKE CALCULATION FOR CALIFORNIA SEA LION
                                                                                                                                                                                                                              Area
                                                                       Activity                                                      Pile type                                       Density                                                     Take estimate
                                                                                                                                                                                                                              (km2)

                                                  Vibratory driving and extraction ......                  24-in steel pile ................................       0.31 (0.12 animal/km2) ..................                            38.09           * 3,250



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                                                  33238                             Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices

                                                                                           TABLE 9—TAKE CALCULATION FOR CALIFORNIA SEA LION—Continued
                                                                                                                                                                                                       Area
                                                                     Activity                                          Pile type                                          Density                                  Take estimate
                                                                                                                                                                                                       (km2)

                                                  Vibratory driving and extraction ......            36-in steel pile ................................    0.31 (0.12 animal/km2) ..................        86.52     * 7,150; 110
                                                  Vibratory extraction .........................     Wood and concrete piles ...............              0.31 (0.12 animal/km2) ..................         1.27            * 300
                                                  Vibratory driving ..............................   Wood piles .....................................     0.31 (0.12 animal/km2) ..................         0.14            * 100
                                                     * All California sea lion estimates were multiplied by 10 to account for the increased occurrence of this species due to El Niño.


                                                    All California sea lion estimates were                          (TMMC, personal communication).                                 Gray Whale
                                                  multiplied by 10 to account for the                               Because sightings are normally rare;                               Historically, gray whales were not
                                                  increased occurrence of this species due                          instances recently have been observed,                          common in San Francisco Bay. The
                                                  to El Niño. A total of 7,660 California                          but are not common, and based on                                Oceanic Society has tracked gray whale
                                                  sea lion takes is estimated for 2016                              estimates from local observations                               sightings since they began returning to
                                                  (Table 7).                                                        (TMMC, personal communication), it is                           San Francisco Bay regularly in the late
                                                  Northern Elephant Seal                                            estimated that ten Norther fur seals will                       1990s. The Oceanic Society data show
                                                                                                                    be taken in 2016 (Table 7).                                     that all age classes of gray whales are
                                                    Monitoring of marine mammals in the                                                                                             entering San Francisco Bay, and that
                                                  vicinity of the SFOBB has been ongoing                            Harbor Porpoise                                                 they enter as singles or in groups of up
                                                  for 15 years; from those data, Caltrans                                                                                           to five individuals. However, the data
                                                  has produced an estimated at-sea                                    In the last six decades, harbor
                                                                                                                    porpoises were observed outside of San                          do not distinguish between sightings of
                                                  density for northern elephant seal of                                                                                             gray whales and number of individual
                                                  0.16 animal per square mile (0.03                                 Francisco Bay. The few harbor
                                                                                                                                                                                    whales (Winning, 2008). Caltrans
                                                  animal per square kilometer) (Caltrans,                           porpoises that entered were not sighted
                                                                                                                                                                                    Richmond-San Rafael Bridge project
                                                  2015b). Most sightings of northern                                past central Bay close to the Golden
                                                                                                                                                                                    monitors recorded 12 living and two
                                                  elephant seal in San Francisco Bay                                Gate Bridge. In recent years, however,                          dead gray whales in the surveys
                                                  occur in spring or early summer, and are                          there have been increasingly common                             performed in 2012. All sightings were in
                                                  less likely to occur during the periods                           observations of harbor porpoises in                             either the central or north Bay; and all
                                                  of in-water work for this project (June/                          central, north, and south San Francisco                         but two sightings occurred during the
                                                  July through November). As a result,                              Bay. Porpoise activity inside San                               months of April and May. One gray
                                                  densities during pile driving for the                             Francisco Bay is thought to be related to                       whale was sighted in June, and one in
                                                  proposed action would be much lower.                              foraging and mating behaviors (Keener,                          October (the specific years were
                                                  Therefore, we estimate that it is possible                        2011; Duffy, 2015). According to                                unreported). It is estimated that two to
                                                  that a lone northern elephant seal may                            observations by the Golden Gate                                 six gray whales enter San Francisco Bay
                                                  enter the Level B harassment area once                            Cetacean Research team as part of their                         in any given year. Because construction
                                                  per week during pile driving, for a total                         multi-year assessment, over 100                                 activities are only occurring during a
                                                  of 14 takes in 2016 (Table 7).                                    porpoises may be seen at one time                               maximum of 106 days in 2016, it is
                                                  Northern Fur Seal                                                 entering San Francisco Bay; and over                            estimated that two gray whales may
                                                                                                                    600 individual animals are documented                           potentially enter the area during the
                                                     During the breeding season, the                                                                                                construction period, for a total of 2 gray
                                                  majority of the worldwide population is                           in a photo-ID database. However,
                                                                                                                    sightings are concentrated in the                               whale takes in 2016 (Table 7).
                                                  found on the Pribilof Islands in the
                                                  southern Bering Sea, with the remaining                           vicinity of the Golden Gate Bridge and                          Bottlenose Dolphin
                                                  animals spread throughout the North                               Angel Island, north of the project area,                           Since the 1982–83 El Niño, which
                                                  Pacific Ocean. On the coast of                                    with lesser numbers sighted south of                            increased water temperatures off
                                                  California, small breeding colonies are                           Alcatraz and west of Treasure Island                            California, bottlenose dolphins have
                                                  present at San Miguel Island off                                  (Keener 2011). Harbor porpoise                                  been consistently sighted along the
                                                  southern California, and the Farallon                             generally travel individually or in small                       central California coast (Caretta et al
                                                  Islands off central California (Caretta et                        groups of two or three (Sekiguchi, 1995).                       2008). The northern limit of their
                                                  al 2014). Northern fur seal are a pelagic                           Monitoring of marine mammals in the                           regular range is currently the Pacific
                                                  species and are rarely seen near the                              vicinity of the SFOBB has been ongoing                          coast off San Francisco and Marin
                                                  shore away from breeding areas.                                   for 15 years; from those data, Caltrans                         County, and they occasionally enter San
                                                  Juveniles of this species occasionally                                                                                            Francisco Bay, sometimes foraging for
                                                                                                                    has produced an estimated at-sea
                                                  strand in San Francisco Bay,                                                                                                      fish in Fort Point Cove, just east of the
                                                                                                                    density for harbor porpoise of 0.01
                                                  particularly during El Niño events, for                                                                                          Golden Gate Bridge. In the summer of
                                                                                                                    animal per square mile (0.004 animal
                                                  example, during the 2006 El Niño event,                                                                                          2015, a lone bottlenose dolphin was
                                                  33 fur seals were admitted to the Marine                          per square kilometer) (Caltrans, 2015b).
                                                                                                                                                                                    seen swimming in the Oyster Point area
                                                  Mammal Center (TMMC, 2016). Some of                               However, this estimate would be an                              of South San Francisco (GGCR, 2016).
                                                  these stranded animals were collected                             overestimate of what would actually be                          Members of this stock are transient and
                                                  from shorelines in San Francisco Bay.                             seen in the project area. In order to                           make movements up and down the
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                                                  Due to the recent El Niño event,                                 estimate a more realistic take number,                          coast, and into some estuaries,
                                                  Northern fur seals are being observed in                          we assume it is possible that a small                           throughout the year. Due to the recent
                                                  San Francisco bay more frequently, as                             group of individuals (three harbor                              El Niño event, bottlenose dolphins are
                                                  well as strandings all along the                                  porpoises) may enter the Level B                                being observed in San Francisco bay
                                                  California coast and inside San                                   harassment area on as many as two days                          more frequently (TMMC, personal
                                                  Francisco Bay; a trend that is expected                           of pile driving, for a total of six harbor                      communication). Groups with an
                                                  to continue this summer through winter                            porpoise takes per year (Table 7).                              average group size of five animals enter


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                                                                              Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices                                              33239

                                                  the bay and occur near Yerba Buena                      produced (less than 180 dB) and the                   as increased swimming speeds,
                                                  Island once per week for a two week                     lack of potentially injurious source                  increased surfacing time, or decreased
                                                  stint and then depart the bay (TMMC,                    characteristics. Impact pile driving                  foraging (if such activity were occurring)
                                                  personal communication). Assuming                       produces short, sharp pulses with                     (e.g., Thorson and Reyff, 2006; Lerma,
                                                  groups of five individuals may enter San                higher peak levels and much sharper                   2014). Most likely, individuals will
                                                  Francisco Bay approximately three                       rise time to reach those peaks. If impact             simply move away from the sound
                                                  times during the construction activities,               driving is necessary, implementation of               source and be temporarily displaced
                                                  we estimate 30 takes of bottlenose                      soft start and shutdown zones                         from the areas of pile driving, although
                                                  dolphins for 2016 (Table 7).                            significantly reduces any possibility of              even this reaction has been observed
                                                                                                          injury. Given sufficient ‘‘notice’’                   primarily only in association with
                                                  Analyses and Preliminary                                through use of soft start (for impact                 impact pile driving. Repeated exposures
                                                  Determinations                                          driving), marine mammals are expected                 of individuals to levels of sound that
                                                  Negligible Impact Analysis                              to move away from a sound source that                 may cause Level B harassment are
                                                                                                          is annoying prior to it becoming                      unlikely to result in hearing impairment
                                                     NMFS has defined ‘‘negligible
                                                                                                          potentially injurious. WETA will also                 or to significantly disrupt foraging
                                                  impact’’ in 50 CFR 216.103 as ‘‘. . . an
                                                                                                          employ the use of 12-inch-thick wood                  behavior due to the small ensonification
                                                  impact resulting from the specified
                                                                                                          cushion block on impact hammers, and                  area and relatively short duration of the
                                                  activity that cannot be reasonably
                                                                                                          use a bubble curtain as sound                         project. Thus, even repeated Level B
                                                  expected to, and is not reasonably likely
                                                                                                          attenuation devices. Environmental                    harassment of some small subset of the
                                                  to, adversely affect the species or stock
                                                                                                          conditions in San Francisco Ferry                     overall stock is unlikely to result in any
                                                  through effects on annual rates of
                                                                                                          Terminal mean that marine mammal                      significant realized decrease in fitness
                                                  recruitment or survival.’’ A negligible
                                                                                                          detection ability by trained observers is             for the affected individuals, and thus
                                                  impact finding is based on the lack of                  high, enabling a high rate of success in              would not result in any adverse impact
                                                  likely adverse effects on annual rates of               implementation of shutdowns to avoid                  to the stock as a whole.
                                                  recruitment or survival (i.e., population-              injury.                                                  In summary, this negligible impact
                                                  level effects). An estimate of the number                  WETA’s proposed activities are                     analysis is founded on the following
                                                  of Level B harassment takes alone is not                localized and of relatively short                     factors: (1) the possibility of injury,
                                                  enough information on which to base an                  duration (a maximum of 106 days for                   serious injury, or mortality may
                                                  impact determination. In addition to                    pile driving in the first year). The entire           reasonably be considered discountable;
                                                  considering estimates of the number of                  project area is limited to the San                    (2) the anticipated instances of Level B
                                                  marine mammals that might be ‘‘taken’’                  Francisco ferry terminal area and its                 harassment consist of, at worst,
                                                  through behavioral harassment, we                       immediate surroundings. These                         temporary modifications in behavior; (3)
                                                  consider other factors, such as the likely              localized and short-term noise                        the presumed efficacy of the proposed
                                                  nature of any responses (e.g., intensity,               exposures may cause short-term                        mitigation measures in reducing the
                                                  duration), the context of any responses                 behavioral modifications in harbor                    effects of the specified activity to the
                                                  (e.g., critical reproductive time or                    seals, Northern fur seals, Northern                   level of least practicable impact, and (4)
                                                  location, migration), as well as the                    elephant seals, California sea lions,                 the lack of important areas. In addition,
                                                  number and nature of estimated Level A                  harbor porpoises, bottlenose dolphins,                these stocks are not listed under the
                                                  harassment takes, the number of                         and gray whales. Moreover, the                        ESA. In combination, we believe that
                                                  estimated mortalities, and effects on                   proposed mitigation and monitoring                    these factors, as well as the available
                                                  habitat.                                                measures are expected to reduce the                   body of evidence from other similar
                                                     Pile driving activities associated with              likelihood of injury and behavior                     activities, demonstrate that the potential
                                                  the ferry terminal construction project,                exposures. Additionally, no important                 effects of the specified activity will have
                                                  as outlined previously, have the                        feeding and/or reproductive areas for                 only short-term effects on individuals.
                                                  potential to disturb or displace marine                 marine mammals are known to be                        The specified activity is not reasonably
                                                  mammals. Specifically, the specified                    within the ensonified area during the                 expected to and is not reasonably likely
                                                  activities may result in take, in the form              construction time frame.                              to adversely affect the marine mammal
                                                  of Level B harassment (behavioral                          The project also is not expected to                species or stocks through effects on
                                                  disturbance) only, from underwater                      have significant adverse effects on                   annual rates of recruitment or survival,
                                                  sounds generated from pile driving.                     affected marine mammals’ habitat. The                 and will therefore not result in
                                                  Potential takes could occur if                          project activities would not modify                   population-level impacts.
                                                  individuals of these species are present                existing marine mammal habitat for a                     Based on the analysis contained
                                                  in the ensonified zone when pile                        significant amount of time. The                       herein of the likely effects of the
                                                  driving occurs.                                         activities may cause some fish to leave               specified activity on marine mammals
                                                     No injury, serious injury, or mortality              the area of disturbance, thus temporarily             and their habitat, and taking into
                                                  is anticipated given the nature of the                  impacting marine mammals’ foraging                    consideration the implementation of the
                                                  activities and measures designed to                     opportunities in a limited portion of the             proposed monitoring and mitigation
                                                  minimize the possibility of injury to                   foraging range; but, because of the short             measures, we preliminarily find that the
                                                  marine mammals. The potential for                       duration of the activities and the                    total marine mammal take from WETA’s
                                                  these outcomes is minimized through                     relatively small area of the habitat that             ferry terminal construction activities
                                                  the construction method and the                         may be affected, the impacts to marine                will have a negligible impact on the
                                                  implementation of the planned                           mammal habitat are not expected to
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                                                                                                                                                                affected marine mammal species or
                                                  mitigation measures. Specifically,                      cause significant or long-term negative               stocks.
                                                  vibratory hammers will be the primary                   consequences.
                                                  method of installation (impact driving is                  Effects on individuals that are taken              Small Numbers Analysis
                                                  included only as a contingency), and                    by Level B harassment, on the basis of                  Table 10 details the number of
                                                  this activity does not have the potential               reports in the literature as well as                  instances that animals could be exposed
                                                  to cause injury to marine mammals due                   monitoring from other similar activities,             to received noise levels that could cause
                                                  to the relatively low source levels                     will likely be limited to reactions such              Level B behavioral harassment for the


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                                                  33240                             Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices

                                                  proposed work at the ferry terminal                             percent of the population (if each                            harbor seals occurring in the vicinity of
                                                  project site relative to the total stock                        instance was a separate individual) for                       the ferry terminal, there will almost
                                                  abundance. The numbers of animals                               which take is requested is                                    certainly be some overlap in individuals
                                                  authorized to be taken for all species                          approximately nine percent for                                present day-to-day, and the number of
                                                  would be considered small relative to                           bottlenose dolphins, approximately six                        individuals taken is expected to be
                                                  the relevant stocks or populations even                         percent for harbor seals, less than three                     notably lower. We preliminarily find
                                                  if each estimated instance of take                              percent for California sea lions, and less                    that small numbers of marine mammals
                                                  occurred to a new individual—an                                 than one percent for all other species                        will be taken relative to the populations
                                                  extremely unlikely scenario. The total                          (Table 10). For pinnipeds, especially                         of the affected species or stocks.

                                                       TABLE 10—ESTIMATED NUMBERS AND PERCENTAGE OF STOCK THAT MAY BE EXPOSED TO LEVEL B HARASSMENT
                                                                                                                                                                                Proposed           Stock(s)    Percentage of
                                                                                                          Species                                                               authorized       abundance      total stock
                                                                                                                                                                                  takes           estimate 1        (%)

                                                  Harbor Seal (Phoca vitulina) California stock .............................................................................          1,756          30,968              5.7
                                                  California sea lion (Zalophus californianus) U.S. Stock ..............................................................               7,660         296,750              2.6
                                                  Northern elephant seal (Mirounga anustirostris) California breeding stock ................................                              14         179,000           .0008
                                                  Northern fur seal (Callorhinus ursinus) California stock .............................................................                  10          14,050             .007
                                                  Harbor Porpoise (Phocoena phocoena) San Francisco-Russian River Stock ...........................                                        6           9,886            .006
                                                  Gray whale (Eschrichtius robustus) Eastern North Pacific stock ................................................                          2          20,990             .001
                                                  Bottlenose dolphin (Tursiops truncatus) California coastal stock ...............................................                        30             323              9.3
                                                     1 All   stock abundance estimates presented here are from the draft 2015 Pacific Stock Assessment Report.


                                                  Impact on Availability of Affected                              section is proposed for inclusion in the             prohibited and may result in the
                                                  Species for Taking for Subsistence Uses                         IHA (if issued).                                     modification, suspension, or revocation
                                                    There are no relevant subsistence uses                          1. This Incidental Harassment                      of this IHA.
                                                  of marine mammals implicated by this                            Authorization (IHA) is valid for one year              (e) WETA shall conduct briefings
                                                  action. Therefore, we have determined                           from the date of issuance.                           between construction supervisors and
                                                                                                                    2. This IHA is valid only for pile                 crews, marine mammal monitoring
                                                  that the total taking of affected species
                                                                                                                  driving activities associated with the               team, and WETA staff prior to the start
                                                  or stocks would not have an unmitigable
                                                                                                                  Downtown San Francisco Ferry                         of all pile driving activity, and when
                                                  adverse impact on the availability of
                                                                                                                  Terminal Expansion Project, South                    new personnel join the work.
                                                  such species or stocks for taking for
                                                  subsistence purposes.                                           Basin Improvements Project in San                      4. Mitigation Measures.
                                                                                                                  Francisco Bay, CA.                                     The holder of this Authorization is
                                                  Endangered Species Act (ESA)                                      3. General Conditions.                             required to implement the following
                                                     No marine mammal species listed                                (a) A copy of this IHA must be in the              mitigation measures:
                                                  under the ESA are expected to be                                possession of WETA, its designees, and                 (a) For all pile driving, WETA shall
                                                  affected by these activities. Therefore,                        work crew personnel operating under                  implement a minimum shutdown zone
                                                  we have determined that section 7                               the authority of this IHA.                           of 10 m radius around the pile. If a
                                                                                                                    (b) The species authorized for taking              marine mammal comes within or
                                                  consultation under the ESA is not
                                                                                                                  are summarized in Table 1.                           approaches the shutdown zone, such
                                                  required.                                                         (c) The taking, by Level B harassment              operations shall cease.
                                                  National Environmental Policy Act                               only, is limited to the species listed in              (b) For in-water heavy machinery
                                                  (NEPA)                                                          condition 3(b). See Table 1 for numbers              work other than pile driving (e.g.,
                                                    NMFS is currently conducting an                               of take authorized.                                  standard barges, tug boats, barge-
                                                  analysis, pursuant to National                                                                                       mounted excavators, or clamshell
                                                  Environmental Policy Act (NEPA), to                                   TABLE 1—AUTHORIZED TAKE                        equipment used to place or remove
                                                  determine whether or not this proposed                                                  NUMBERS                      material), if a marine mammal comes
                                                  activity may have a significant effect on                                                                            within 10 meters, operations shall cease
                                                                                                                                                   Authorized take     and vessels shall reduce speed to the
                                                  the human environment. This analysis                                   Species
                                                  will be completed prior to the issuance                                                         Level A    Level B   minimum level required to maintain
                                                  or denial of this proposed IHA.                                                                                      steerage and safe working conditions.
                                                                                                                  Harbor seal ...............             0      1,756   (c) WETA shall establish monitoring
                                                  Proposed Authorization                                          California sea lion .....               0      7,660 locations as described below. Please
                                                    As a result of these preliminary                              Northern elephant                                    also refer to the Marine Mammal
                                                  determinations, we propose to authorize                           seal ........................         0         14 Monitoring Plan (see
                                                  the take of marine mammals incidental                           Northern fur seal .......               0         10 www.nmfs.noaa.gov/pr/permits/
                                                                                                                  Harbor porpoise ........                0          6
                                                  to WETA’s Downtown San Francisco                                Gray whale ...............              0          2
                                                                                                                                                                       incidental/construction.htm).
                                                  Ferry Terminal Expansion Project,                               Bottlenose dolphin ....                 0         30   i. For all pile driving activities, a
                                                  South Basin Improvements Project,                                                                                    minimum of two observers shall be
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                                                  provided the previously mentioned                                    Total ...................          0      9,478 deployed, with one positioned to
                                                  mitigation, monitoring, and reporting                                                                                achieve optimal monitoring of the
                                                  requirements are incorporated. Specific                           (d) The taking by injury (Level A                  shutdown zone and the second
                                                  language from the proposed IHA is                               harassment), serious injury, or death of             positioned to achieve optimal
                                                  provided next.                                                  the species listed in condition 3(b) of              monitoring of surrounding waters of the
                                                    This section contains a draft of the                          the Authorization or any taking of any               ferry terminal and portions of San
                                                  IHA. The wording contained in this                              other species of marine mammal is                    Francisco Bay. If practicable, the second


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                                                                              Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices                                             33241

                                                  observer should be deployed to an                       project start and in accordance with the              subsequent IHA for projects at the San
                                                  elevated position with clear sight lines                monitoring plan, and shall include                    Francisco Ferry Terminal, whichever
                                                  to the ferry terminal.                                  instruction on species identification                 comes first. A final report shall be
                                                     ii. These observers shall record all                 (sufficient to distinguish the species                prepared and submitted within thirty
                                                  observations of marine mammals,                         listed in 3(b)), description and                      days following resolution of comments
                                                  regardless of distance from the pile                    categorization of observed behaviors                  on the draft report from NMFS. This
                                                  being driven, as well as behavior and                   and interpretation of behaviors that may              report must contain the informational
                                                  potential behavioral reactions of the                   be construed as being reactions to the                elements described in the Monitoring
                                                  animals. Observations within the ferry                  specified activity, proper completion of              Plan, at minimum (see
                                                  terminal shall be distinguished from                    data forms, and other basic components                www.nmfs.noaa.gov/pr/permits/
                                                  those in the nearshore waters of San                    of biological monitoring, including                   incidental/construction.htm), and shall
                                                  Francisco Bay.                                          tracking of observed animals or groups                also include:
                                                     iii. All observers shall be equipped for             of animals such that repeat sound                       i. Detailed information about any
                                                  communication of marine mammal                          exposures may be attributed to                        implementation of shutdowns,
                                                  observations amongst themselves and to                  individuals (to the extent possible).                 including the distance of animals to the
                                                  other relevant personnel (e.g., those                      (g) WETA shall use soft start                      pile and description of specific actions
                                                  necessary to effect activity delay or                   techniques recommended by NMFS for                    that ensued and resulting behavior of
                                                  shutdown).                                              impact pile driving. Soft start requires              the animal, if any.
                                                     (c) Monitoring shall take place from                 contractors to provide an initial set of                ii. Description of attempts to
                                                  fifteen minutes prior to initiation of pile             strikes at reduced energy, followed by a              distinguish between the number of
                                                  driving activity through thirty minutes                 thirty-second waiting period, then two                individual animals taken and the
                                                  post-completion of pile driving activity.               subsequent reduced energy strike sets.                number of incidents of take, such as
                                                  In the event of a delay or shutdown of                  Soft start shall be implemented at the                ability to track groups or individuals.
                                                  activity resulting from marine mammals                  start of each day’s impact pile driving                 iii. An estimated total take estimate
                                                  in the shutdown zone, animals shall be                  and at any time following cessation of                extrapolated from the number of marine
                                                  allowed to remain in the shutdown zone                  impact pile driving for a period of thirty            mammals observed during the course of
                                                  (i.e., must leave of their own volition)                minutes or longer.                                    construction activities, if necessary.
                                                  and their behavior shall be monitored                      (h) Sound attenuation devices—                       (b) Reporting injured or dead marine
                                                  and documented. Monitoring shall                        Approved sound attenuation devices                    mammals:
                                                  occur throughout the time required to                   (e.g. bubble curtain, pile cushion) shall               i. In the unanticipated event that the
                                                  drive a pile. The shutdown zone must                    be used during impact pile driving                    specified activity clearly causes the take
                                                  be determined to be clear during periods                operations. WETA shall implement the                  of a marine mammal in a manner
                                                  of good visibility (i.e., the entire                    necessary contractual requirements to                 prohibited by this IHA, such as an
                                                  shutdown zone and surrounding waters                    ensure that such devices are capable of               injury (Level A harassment), serious
                                                  must be visible to the naked eye).                      achieving optimal performance, and that               injury, or mortality, WETA shall
                                                     (d) If a marine mammal approaches or                                                                       immediately cease the specified
                                                                                                          deployment of the device is
                                                  enters the shutdown zone, all pile                                                                            activities and report the incident to the
                                                                                                          implemented properly such that no
                                                  driving activities at that location shall                                                                     Office of Protected Resources, NMFS,
                                                                                                          reduction in performance may be
                                                  be halted. If pile driving is halted or                                                                       and the Southwest Regional Stranding
                                                                                                          attributable to faulty deployment.
                                                  delayed due to the presence of a marine                    (i) Pile driving shall only be                     Coordinator, NMFS. The report must
                                                  mammal, the activity may not                            conducted during daylight hours.                      include the following information:
                                                  commence or resume until either the                        5. Monitoring.                                       A. Time and date of the incident;
                                                  animal has voluntarily left and been                       The holder of this Authorization is                  B. Description of the incident;
                                                  visually confirmed beyond the                           required to conduct marine mammal                       C. Environmental conditions (e.g.,
                                                  shutdown zone or fifteen minutes have                   monitoring during pile driving activity.              wind speed and direction, Beaufort sea
                                                  passed without re-detection of the                      Marine mammal monitoring and                          state, cloud cover, and visibility);
                                                  animal.                                                 reporting shall be conducted in                         D. Description of all marine mammal
                                                     (e) Using delay and shut-down                        accordance with the Monitoring Plan.                  observations in the 24 hours preceding
                                                  procedures, if a species for which                         (a) WETA shall collect sighting data               the incident;
                                                  authorization has not been granted                      and behavioral responses to pile driving                E. Species identification or
                                                  (including but not limited to Guadalupe                 for marine mammal species observed in                 description of the animal(s) involved;
                                                  fur seals and humpback whales) or if a                  the region of activity during the period                F. Fate of the animal(s); and
                                                  species for which authorization has                     of activity. All observers shall be trained             G. Photographs or video footage of the
                                                  been granted but the authorized takes                   in marine mammal identification and                   animal(s).
                                                  are met, approaches or is observed                      behaviors, and shall have no other                      Activities shall not resume until
                                                  within the Level B harassment zone,                     construction-related tasks while                      NMFS is able to review the
                                                  activities will shut down immediately                   conducting monitoring.                                circumstances of the prohibited take.
                                                  and not restart until the animals have                     (b) For all marine mammal                          NMFS will work with WETA to
                                                  been confirmed to have left the area.                   monitoring, the information shall be                  determine what measures are necessary
                                                     (f) Monitoring shall be conducted by                 recorded as described in the Monitoring               to minimize the likelihood of further
                                                  qualified observers, as described in the                Plan.                                                 prohibited take and ensure MMPA
                                                  Monitoring Plan. Trained observers                                                                            compliance. WETA may not resume
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                                                                                                             6. Reporting.
                                                  shall be placed from the best vantage                      The holder of this Authorization is                their activities until notified by NMFS.
                                                  point(s) practicable to monitor for                     required to:                                            ii. In the event that WETA discovers
                                                  marine mammals and implement                               (a) Submit a draft report on all                   an injured or dead marine mammal, and
                                                  shutdown or delay procedures when                       monitoring conducted under the IHA                    the lead observer determines that the
                                                  applicable through communication with                   within ninety days of the completion of               cause of the injury or death is unknown
                                                  the equipment operator. Observer                        marine mammal monitoring, or sixty                    and the death is relatively recent (e.g.,
                                                  training must be provided prior to                      days prior to the issuance of any                     in less than a moderate state of


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                                                  33242                       Federal Register / Vol. 81, No. 101 / Wednesday, May 25, 2016 / Notices

                                                  decomposition), WETA shall                              Paperwork Reduction Act (44 U.S.C.                    DEPARTMENT OF COMMERCE
                                                  immediately report the incident to the                  Chapter 35).
                                                  Office of Protected Resources, NMFS,                      Agency: National Oceanic and                        National Oceanic and Atmospheric
                                                  and the Southwest Regional Stranding                    Atmospheric Administration (NOAA).                    Administration
                                                  Coordinator, NMFS.                                        Title:
                                                                                                            OMB Control Number: 0648–xxxx.                      RIN 0648–XE631
                                                     The report must include the same
                                                  information identified in 6(b)(i) of this                 Form Number(s): None.
                                                                                                            Type of Request: Emergency request                  Magnuson-Stevens Act Provisions;
                                                  IHA. Activities may continue while                                                                            General Provisions for Domestic
                                                  NMFS reviews the circumstances of the                   for a new information collection.
                                                                                                            Number of Respondents: 200.                         Fisheries; Application for Exempted
                                                  incident. NMFS will work with WETA                                                                            Fishing Permits
                                                                                                            Average Hours per Response: 45
                                                  to determine whether additional
                                                                                                          minutes.                                              AGENCY:  National Marine Fisheries
                                                  mitigation measures or modifications to                   Burden Hours: 150.
                                                  the activities are appropriate.                                                                               Service (NMFS), National Oceanic and
                                                                                                            Needs and Uses: The purpose of this
                                                     iii. In the event that discovers an                                                                        Atmospheric Administration (NOAA),
                                                                                                          collection of information is to make
                                                  injured or dead marine mammal, and                                                                            Commerce.
                                                                                                          available to the scientific community
                                                  the lead observer determines that the                   remainders of physical samples that are               ACTION: Notice; request for comments.
                                                  injury or death is not associated with or               being stored pending the lifting of
                                                  related to the activities authorized in the                                                                   SUMMARY:   The Assistant Regional
                                                                                                          preservation requirements (expected to                Administrator for Sustainable Fisheries,
                                                  IHA (e.g., previously wounded animal,                   occur in early June 2016) associated
                                                  carcass with moderate to advanced                                                                             Greater Atlantic Region, NMFS, has
                                                                                                          with recently settled legal claims for                made a preliminary determination that
                                                  decomposition, scavenger damage),                       natural resource damages involving the
                                                  WETA shall report the incident to the                                                                         an Exempted Fishing Permit application
                                                                                                          Deepwater Horizon (DWH) oil spill.                    contains all of the required information
                                                  Office of Protected Resources, NMFS,                    These samples include oil, sediment,
                                                  and the Southwest Regional Stranding                                                                          and warrants further consideration. The
                                                                                                          biological tissue, and other materials
                                                  Coordinator, NMFS, within 24 hours of                                                                         exempted fishing permit would allow a
                                                                                                          collected for various investigational
                                                  the discovery. WETA shall provide                                                                             commercial fishing vessel to fish
                                                                                                          purposes. The majority of the samples
                                                  photographs or video footage or other                                                                         outside of the limited access scallop
                                                                                                          belong to the National Oceanic and
                                                  documentation of the stranded animal                                                                          regulations in support of gear research
                                                                                                          Atmospheric Administration (NOAA); a
                                                  sighting to NMFS.                                                                                             designed to reduce the amount of small,
                                                                                                          small portion of the collection belongs
                                                     7. This Authorization may be                                                                               unexploitable scallops caught and create
                                                                                                          to the U.S. Fish and Wildlife Service
                                                  modified, suspended or withdrawn if                                                                           better dredge selectivity, as well as
                                                                                                          (USFWS). Prior to sample disposal,
                                                  the holder fails to abide by the                                                                              reduce finfish bycatch.
                                                                                                          NOAA and USFWS are offering these
                                                  conditions prescribed herein, or if                                                                              Regulations under the Magnuson-
                                                                                                          samples and/or remainders of samples
                                                  NMFS determines the authorized taking                                                                         Stevens Fishery Conservation and
                                                                                                          to researchers and/or other interested
                                                  is having more than a negligible impact                                                                       Management Act require publication of
                                                                                                          members of the scientific community.
                                                  on the species or stock of affected                                                                           this notification to provide interested
                                                                                                          The information collected will allow
                                                  marine mammals.                                                                                               parties the opportunity to comment on
                                                                                                          NOAA/USFWS to process requests for
                                                                                                                                                                applications for proposed Exempted
                                                  Request for Public Comments                             samples received by both agencies.
                                                                                                            Emergency Paperwork Reduction Act                   Fishing Permits.
                                                     We request comment on our analyses,                  review and authorization of the                       DATES: Comments must be received on
                                                  the draft authorization, and any other                  information request will facilitate an                or before June 9, 2016.
                                                  aspect of this Notice of Proposed IHAs                  expeditious sample distribution and                   ADDRESSES: You may submit written
                                                  for WETA’s ferry terminal construction                  disposal process, more quickly reducing               comments by any of the following
                                                  activities. Please include with your                    sample storage costs which currently                  methods:
                                                  comments any supporting data or                         total approximately $350,000 per                         • Email: nmfs.gar.efp@noaa.gov.
                                                  literature citations to help inform our                 month.                                                Include in the subject line ‘‘Box Dredge
                                                  final decision on WETA’s request for an                   Affected Public: Not-for-profit                     EFP.’’
                                                  MMPA authorization.                                     institutions; business or other for-profit               • Mail: John K. Bullard, Regional
                                                    Dated: May 19, 2016.                                  organizations.                                        Administrator, NMFS, Greater Atlantic
                                                  Perry F. Gayaldo,                                         Frequency: One time.                                Regional Fisheries Office, 55 Great
                                                  Deputy Director, Office of Protected                      Respondent’s Obligation: Required to                Republic Drive, Gloucester, MA 01930.
                                                  Resources, National Marine Fisheries Service.           obtain or retain benefits.                            Mark the outside of the envelope
                                                  [FR Doc. 2016–12299 Filed 5–24–16; 8:45 am]               This information collection request                 ‘‘Comments on Box Dredge EFP.’’
                                                  BILLING CODE 3510–22–P
                                                                                                          may be viewed at reginfo.gov. Follow                     • Fax: (978) 281–9135.
                                                                                                          the instructions to view Department of                FOR FURTHER INFORMATION CONTACT:
                                                                                                          Commerce collections currently under                  Shannah Jaburek, Fisheries Management
                                                  DEPARTMENT OF COMMERCE                                  review by OMB.                                        Specialist, 978–282–8456.
                                                                                                            Written comments and
                                                                                                                                                                SUPPLEMENTARY INFORMATION: A scallop
                                                  National Oceanic and Atmospheric                        recommendations for the proposed
                                                                                                          information collection should be sent                 captain has submitted an exempted
                                                  Administration
                                                                                                          within 5 days of publication of this                  fishing permit (EFP) application for a
                                                                                                                                                                project that would test a scallop box-
mstockstill on DSK3G9T082PROD with NOTICES




                                                  Submission for OMB Review;                              notice to OIRA_Submission@
                                                  Comment Request                                         omb.eop.gov or fax to (202) 395–5806.                 shaped ring bag designed to reduce the
                                                                                                                                                                amount of small scallops and finfish
                                                    The Department of Commerce will                         Dated: May 20, 2016.                                bycatch caught in the dredge, resulting
                                                  submit to the Office of Management and                  Sarah Brabson,                                        in better gear selectivity and reducing
                                                  Budget (OMB) for clearance the                          NOAA PRA Clearance Officer.                           high grading. This is a proof of concept
                                                  following proposal for collection of                    [FR Doc. 2016–12378 Filed 5–24–16; 8:45 am]           project which aims to determine
                                                  information under the provisions of the                 BILLING CODE 3510–JE–P                                whether the gear configuration can be


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Document Created: 2018-02-07 15:03:31
Document Modified: 2018-02-07 15:03:31
CategoryRegulatory Information
CollectionFederal Register
sudoc ClassAE 2.7:
GS 4.107:
AE 2.106:
PublisherOffice of the Federal Register, National Archives and Records Administration
SectionNotices
ActionNotice; proposed incidental harassment authorization; request for comments.
DatesComments and information must be received no later than June 24, 2016.
ContactLaura McCue, Office of Protected Resources, NMFS, (301) 427-8401.
FR Citation81 FR 33217 
RIN Number0648-XE49

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