[Federal Register Volume 65, Number 5 (Friday, January 7, 2000)]
[Proposed Rules]
[Pages 1083-1088]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 00-405]
DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric Administration
50 CFR Part 216
[I.D. 121699A]
Small Takes of Marine Mammals Incidental to Specified Activities;
San Francisco-Oakland Bay Bridge, Pile Installation Demonstration
Project, San Francisco Bay, CA
AGENCY: National Marine Fisheries Service (NMFS), National Oceanic and
Atmospheric Administration (NOAA), Commerce.
ACTION: Notice of receipt of application and proposed authorization for
a small take exemption; request for comments.
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SUMMARY: NMFS has received a request from the Federal Highway Agency
(FHA) on behalf of the California Department of Transportation
(CALTRANS) for the harassment of marine mammals incidental to a pile
installation demonstration project (PIDP) at the San Francisco-Oakland
Bay Bridge (SF-OBB), San Francisco Bay (the Bay), CA. Under the Marine
Mammal Protection Act (MMPA), NMFS is requesting comments on its
proposal to authorize CALTRANS to incidentally take, by harassment,
small numbers of marine mammals in the above mentioned area for a
period of 1 year.
DATES: Comments and information must be received no later than February
7, 2000.
ADDRESSES: Comments on the application should be addressed to Donna
Wieting, Chief, Marine Mammal Conservation Division,
Office of Protected Resources, NMFS, 1315 East-West Highway, Silver
Spring, MD 20910-3225. A copy of the application and a list of
references used in this document may be obtained by writing to this
address or by telephoning one of the contacts listed here.
FOR FURTHER INFORMATION CONTACT: Kenneth R. Hollingshead, (301) 713-
2055 ext 128, or Tina Fahy, (562) 980-4023.
SUPPLEMENTARY INFORMATION:
Background
Section 101(a)(5)(A) and (D) of the MMPA (16 U.S.C. 1361 et seq.)
direct the Secretary of Commerce to allow, upon request, the
incidental, but not intentional, taking of marine mammals by U.S.
citizens who engage in a specified activity (other than commercial
fishing) within a specified geographical region if certain findings are
made and either regulations are issued or, if the taking is limited to
harassment, a notice of a proposed authorization is provided to the
public for review.
Permission may be granted if NMFS finds that the taking will have a
negligible impact on the species or stock(s) and will not have an
unmitigable adverse impact on the availability of the species or
stock(s) for subsistence uses and if the permissible methods of taking
and requirements pertaining to the monitoring and reporting of such
takings are set forth. NMFS has defined ``negligible impact'' in 50 CFR
216.103 as `` ...an impact resulting from the specified activity that
cannot be reasonably expected to, and is not reasonably likely to,
adversely affect the species or stock through effects on annual rates
of recruitment or survival.''
Subsection 101(a)(5)(D) of the MMPA established an expedited
process by which citizens of the United States can apply for an
authorization to incidentally take small numbers of marine mammals by
harassment. The MMPA now defines ``harassment'' as:
...any act of pursuit, torment, or annoyance which (a) has the
potential to injure a marine mammal or marine mammal stock in the
wild; or (b) 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.
Subsection 101(a)(5)(D) establishes a 45-day time limit for NMFS
review of an application followed by a 30-day public notice and comment
period on any proposed authorizations for the incidental harassment of
small numbers of marine mammals. Within 45 days of the close of the
comment period, NMFS must either issue or deny issuance of the
authorization.
[[Page 1084]]
Summary of Request
On November 22, 1999, NMFS received an application from the FHA on
behalf of CALTRANS, requesting authorization of an Incidental
Harassment Authorization (IHA) for the possible harassment of small
numbers of Pacific harbor seals (Phoca vitulina), and California sea
lions (Zalophus californianus) incidental to conducting the PIDP at the
SF-OBB.
CALTRANS is currently in the planning stages of the SF-OBB East
Span Seismic Safety Project (ESSSP). The ESSSP would include driving
large piles into the Bay bottom. One of the hammers anticipated to be
used for this task is larger than any pile-driving hammer previously
used in the Bay. Due to the untested nature of these hammers and piles
in the Bay, a pile installation demonstration is needed. The PIDP will
provide CALTRANS with an opportunity to measure resulting sound
pressure levels (SPL), both in air and under water, record impacts to
marine mammals and experiment with measures to reduce potential harm to
marine mammals prior to general use on SF-OBB piles.
The PIDP site is located between Yerba Buena Island (YBI) and
Oakland, in the area to the north of and between existing SF-OBB east
span piers E6 and E9 (see figures 1 and 2 of the application). The PIDP
site is approximately 2.0 km (1.24 mi) from northeast of the YBI harbor
seal haul-out site, which is located immediately to the west of the
lighthouse on the southernmost tip of the island.
The anticipated pier foundations for the ESSSP will consist of
large diameter (up to 110-m (361-ft) long), steel pipe piles that will
be driven into the Bay floor. Current plans anticipate using 2.5-m
(8.2-ft) diameter piles for a majority of the foundations and smaller
1.5-m (4.9-ft) diameter pipe piles for others.
Accurately predicting the characteristics of pile driving prior to
field-testing is not possible because piles of this size and length
have not previously been installed in Bay substrates and there is
limited experience with driving piles of this size. Therefore, given
the unprecedented nature of this work in the Bay, this PIDP will
provide CALTRANS with an opportunity to gather important data regarding
in-air and underwater sound pressure levels generated by the pile
driving activities. In addition, it will also provide an opportunity to
gather data from experimental measures to attenuate elevated SPLs,
thereby reducing the potential for harm to marine mammals. Information
obtained from this demonstration potentially may prove valuable for
forecasting anticipated impacts of pile installation activities
associated with a larger SF-OBB east span construction, which will
require the installation of approximately 350 piles of variable
diameter.
Project Description
The PIDP includes driving three full-scale steel pipe piles (2.438
m (8.0 ft) in diameter, 110 m (361 ft) long) at two locations (two at a
primary site and one at an alternate site) near the existing SF-OBB
east span alignment. Each pile consists of four segments of variable
length and wall thickness that will each be driven, subsequently welded
to another segment, and driven again until the full desired length and
depth of the pile is achieved. Due to the nature of this work, the
majority of the project time will be spent on surface support
activities, such as picking up the pile segments, placing the segment
in the correct spot and welding the segments together. Actual pile
driving will only occur for a small fraction of the project's duration.
Please refer to the CALTRANS application for a complete description of
the pile driving order of work.
Piles will be driven open-ended by hydraulic or steam hammers.
These are large offshore hammers capable of driving large-diameter,
thick-walled steel pipe piles. No other types of hammers (e.g. drop
hammers, diesel hammers or vibratory hammers) will be used on this
project. According to project specifications, two sizes of hammers are
required. A ``smaller'' hammer having a maximum rated energy of not
less than 500 kilojoules (kJ) but not more than 1,000 kJ will be used
to drive initial segments of the piles. This hammer will be similar in
size to the pile driving hammer that was used for activities associated
with the retrofitting of the San Mateo-Hayward Bridge, also in the Bay.
A larger hammer, having a maximum rated energy of not less than 1,700
kJ will be employed to drive subsequent segments of each pile. No upper
limit is placed on the maximum rated energy of the larger hammer,
however there is little motivation to use a larger hammer than
necessary unless there are no other hammers available at that time.
Furthermore, the piles must be able to support the weight of the anvil,
limiting the size of the hammer that can be used.
The PIDP is expected to take place in late spring 2000. All
necessary equipment for the PIDP will be brought to the project site on
barges, tugboats and other marine vessels. Due to the high cost of the
equipment being used for this project and the nature of pile
installation, work will need to proceed 24 hours a day, 7 days a week
for approximately 20 days barring unforeseen circumstances (i.e. broken
equipment, adverse weather conditions). Actual impact hammering will
only occur for a total of about 12 to 16 hours over the estimated 20
days. Continuous impact hammering would likely occur for a maximum
amount of 2-3 hours at a time. As 3 piles are being driven, this
maximum would only be reached on 3 days out of the 20 days of the PIDP.
The hammer is expected to hit the piles at an average rate of 30-45
blows per minute.
Due to the amount of time needed between driving consecutive pile
segments, it is extremely unlikely that more than two segments will be
driven in a 24-hour period. It is important to note that once the
driving of a pile segment begins it cannot be halted until that segment
has reached its desired depth. This is not only because of the expense
of keeping the equipment idle but also due to the nature of the
predominantly clay soil types underlying the Bay. As piles are driven,
the soil gradually loses resistance. If driving is stopped, the soil
has a chance to regain its strength, and resistance to the pile
increases. This can make it more difficult or even impossible to
continue driving the pile, particularly if the pile tip is in a highly
resistant layer at that point. Consequently, once hammering resumes, it
could potentially take a longer time at increased energy levels. This
could amplify impacts to marine mammals, as they would endure
potentially higher SPLs for longer periods of time. Pile segment
heights and wall thickness have been specially designed for this
project to take the location of highly resistant sediment layers into
account, so that when work is stopped at the desired depths between
segments, the pile tip is never resting in highly resistant sediment
layers. In addition, stopping in the middle of pile driving a segment
may interfere with the goal of understanding the characteristics of
pile driving within this new setting. If pile driving is permitted to
be regularly interrupted, meaningful data regarding how the piles
behave may be difficult to obtain.
Description of the Marine Mammals Affected by the Activity
General information on harbor seals, California sea lions, and
other marine mammal species found in Central California waters can be
found in Barlow et al. (1997, 1998). The marine mammals likely to be
found in the SF-
[[Page 1085]]
OBB area are limited to the California sea lion and harbor seal.
California Sea Lions
While California sea lions are known to have historically used the
Bay, they are rarely observed hauled out in the Bay (Bauer, 1999).
However, since at least 1987, sea lions have been observed occupying
the docks near Pier 39 in San Francisco, about 5.7 km (3.5 mi) from the
project site. The number of sea lions hauled out at Pier 39 ranged from
63 to 737 in 1998 and from 5 to 906 in 1997 (Marine Mammal Center,
Sausalito data). For both years, the lows occurred in June and the
highs occurred in August. Most recently, 831 sea lions were observed on
K dock at Pier 39 in October 1999. While they are present in large
numbers, approximately 85 percent of the animals hauled out at this
site are males, and no pupping has been observed at this site or any
other site in the Bay (Lander pers. comm. to CALTRANS, 1999). At this
time, no other sea lion haul-out sites have been identified in the Bay.
About 90 percent of the U.S. stock breeds on the southern California
Channel Islands, over 483 km (300 mi) from the PIDP site (Schoenherr,
1995; Howorth and Abbott, 1999). Pier 39 has now become a regular haul-
out site for sea lions. The sea lions, most of whom are male, appear at
the site after returning from the Channel Islands at the beginning of
August (Bauer, 1999). Around late winter, sea lions begin to travel
south to the breeding grounds, and numbers at the haul-out site
decline. Lowest numbers of sea lions are usually observed from May
through July. Numbers of sea lions at the haul-out site fluctuate quite
a bit throughout the year and even from one week to the next. For
example, in June of 1998, a maximum of 574 sea lions was observed on
June 7th while a low count of 63 was observed on June 25th
(Lander pers. comm. to CALTRANS, 1999).
While little information is available on the foraging patterns of
California sea lions in the Bay, individual sea lions have been
observed feeding in the shipping channel to the south of YBI on a
fairly regular basis (Grigg pers. comm. to CALTRANS, 1999). Foraging by
sea lions that utilize the Pier 39 haul-out site primarily occurs in
the Bay, where they feed on Pacific herring, northern anchovy and
sardines, among other prey (Hanni, 1995).
Pacific Harbor Seals
Pacific harbor seals are the only species of marine mammal that
breed and bear young in the Bay (Howorth and Abbott, 1999). There are
12 haul-out sites and rookeries in the Bay and of those, only eight are
used by more than a few animals at a time. Only three sites in the Bay
are regularly used by more than 40 harbor seals at any one time; these
are Mowry Slough, located in the South Bay, YBI, and Castro Rocks,
located in the Central Bay (Spencer, 1997). The three closest haul-out
sites to the project location are at YBI, Angel Island, and Castro
Rocks. The most recent aerial harbor seal count, conducted this year by
D. Hanan of the California Department of Fish and Game, found 477
individuals in the Bay (Green pers. comm. to CALTRANS, 1999). It is
important to note that not all harbor seals were counted, as some may
have been under water during the survey.
Harbor seals are present in the Bay year-round and use it for
foraging, resting and reproduction. Peak numbers of hauled-out harbor
seals vary by haul-out site depending on the season. Results of a study
of 39 radio-tagged harbor seals in the Bay found that most active
diving occurred at night and a majority of the diving time was spent in
seven feeding areas in the Bay. The two feeding areas located closest
to the project site are just to the south of YBI and north of Treasure
Island. This study also found that the seals dove for a mean time of
0.50 minutes to 3.33 minutes. Mean surface intervals or the mean time
the seals spent at the surface between dives ranged from 0.33 minutes
to 1.04 minutes. Mean haul-out periods ranged from 80 minutes to 24
hours (Harvey and Torok, 1994).
Pupping season in the Bay begins in mid-March and continues until
about mid-May. Pups nurse for only 4 weeks and mating begins after pups
are weaned. In the Bay, mating occurs from April to July and molting
season is from June until August (Schoenherr, 1995; Kopec and Harvey,
1995).
Haul-Out Sites in the Vicinity of the PIDP
YBI is located in the Central Bay, adjacent to man-made Treasure
Island. The SF-OBB passes through a tunnel on YBI. An important harbor
seal haul-out site is located on a rocky beach on the southwest side of
YBI (Kopec and Harvey, 1995). Work for the PIDP will be performed
approximately 2 km (1.24 mi) from this harbor seal haul-out site,
facing the northwest side of the island.
Although seals haul out year-round on YBI, it is not considered a
pupping site for harbor seals as no births have been observed at the
site. Occasionally, pups have been seen at an average of 1 pup per
year, though more recently, 7 pups were observed at one time in May,
1999 (San Francisco State University unpublished records, 1998-9). In a
study of the haul-out site conducted between 1989 and 1992, males
comprised 83.1 percent of the seals whose gender could be determined
(Spencer, 1997). Peak numbers of harbor seals at this haul-out site
have been observed from November to February. The maximum reported
number of seals hauled out at one time is 344, counted in January 1992
(Kopec and Harvey, 1995). More recently, the number of seals counted at
YBI ranged from 0 to 296 for the period May 1998 to present. The
maximum count of 296 was recorded on January 1999. Mean monthly counts
for the same period range from 14.5 in September 1998 to 107.3 in June
1999 (San Francisco State University, unpublished records 1998-9). The
abundance of harbor seals at this site during the winter months likely
coincides with the presence of spawning Pacific herring near the
island. Re-sightings at the haul-out site indicate long-term usage of
the site (Spencer, 1997).
Angel Island is a small haul-out site located approximately 7.4 km
(4.6 mi) from the project site. A maximum count of 15 seals was
observed in the 1980s and most recently, six harbor seals were seen in
1989. No pupping has been observed at the site.
The next closest haul-out site is approximately 14 km (8.7 mi) away
at Castro Rocks, near the Richmond end of the Richmond- San Rafael
Bridge. The Castro Rocks haul-out site is a recognized pupping site. A
maximum of 176 harbor seals were observed at Castro Rocks in October
1999 (San Francisco State University unpublished records, 1998-9).
Potential Effects on Marine Mammals
It is possible that California sea lions and harbor seals swimming
in the project vicinity may be subject to elevated SPLs that could
produce a temporary shift in the animal's hearing threshold. Pile
driving noise and human activity around the PIDP could also potentially
result in behavioral changes in nearby pinnipeds. California sea lions
and harbor seals may temporarily cease normal activities, such as
feeding, or pop their heads up above water in response to the noise.
They may also be curious and choose to investigate the project site.
However, existing evidence shows that most marine mammals tend to avoid
loud noises (Richardson, pers. comm. to CALTRANS, 1999). It is likely
then that harbor seals and sea lions in the water in the project
vicinity may be temporarily displaced if they choose to avoid the area
in response to the high SPLs. Due to the short-term nature of
[[Page 1086]]
the pile driving (approximately 12 to 16 hours over 20 days) and its
distance from the YBI haul-out site, the PIDP is not expected to result
in long-term behavioral impacts to Bay seals or sea lions.
Based on in-air hammer noise measurements conducted elsewhere, the
average received SPLs were 107 dB re 20 Pa measured
at 10-20 meters (33-66 feet) from the hammer and between 70 dB and 44
dB re 20 Pa at 2,400 meters (7,874 feet or 1.5
miles) from the hammer. While a direct comparison is not possible due
to different atmospheric and geographic conditions, it is anticipated
that in-air noise levels at the YBI haul-out site, located
approximately 2.0 km (1.24 miles) from the project site and physically
shielded by the island, will attenuate to levels insufficient to cause
injury to the seals and sea lions. It is also likely that harbor seals
at this site will not be disturbed by the sound and leave the beach for
the water, although they will most likely hear the pile driving noise.
Consequently, while it is likely that hauled-out marine mammals
will hear the pile driving activities, noise levels are not expected to
adversely impact them. Impact hammering could potentially harass those
harbor seals that are in the water closer to the project site, whether
their heads are above or below the surface. Potential impacts could
include a temporary elevation in hearing threshold and/or changes in
behavior patterns. However, potential harassment would only occur
during those times when piles are being hammered, estimated at
approximately 12 to 16 hours over 20 days.
It is difficult to estimate the number of California sea lions that
could potentially be affected by the PIDP due to the lack of
information on the number of sea lions in the Bay except for the Pier
39 haul-out site. However, assuming the sea lion population at Pier 39
starts to decline in the late winter as the sea lions migrate south to
the rookeries, only a fraction of the animals would be left in the Bay
at the time of the PIDP (late spring 2000). According to the Marine
Mammal Center in Sausalito, the maximum number of sea lions observed at
the Pier 39 haul-out site during the spring and summer seasons was 820
in April 1999. The mean numbers of sea lions observed at Pier 39 during
spring and summer seasons were 340 in 1998 and 453 in 1997 (Lander,
personal communication to CALTRANS, 1999). Because the Pier 39 haul-out
site is located 5.7 km (3.5 mi) away from the project site, only a
fraction of those sea lions left in the Bay at the time of the project
could potentially be in the project vicinity at any one time. Although
California sea lions are known to forage in groups, available evidence
suggests that they are not regularly seen in groups in the Bay waters
near the PIDP site. In surveys conducted from May 1998 to the present,
sea lions have been observed foraging in the shipping channel to the
south of YBI. However, these sea lions are typically alone and do not
seem to be associated with any other sea lions (Grigg, personal
communication 1999). Given this anecdotal evidence, the number of sea
lions expected to be present at the PIDP site during pile driving
activities is expected to be low.
Noise levels from the project are not expected to result in
harassment of the sea lions hauled out at Pier 39 as SPLs would be
expected to attenuate by the time they reach the haul-out site, 5.7
kilometers (3.5 miles) from the project site. As most of the sea lions
observed at Pier 39 are males, and the project will occur during the
time when females and adult males are in waters off southern California
for the breeding and pupping season, it is anticipated that most of the
California sea lions impacted would be subadult males.
Kopec and Harvey (1995) reported harbor seal counts for several
haul-out sites in the Bay for the period 1989-1992.
Peak numbers of harbor seals haul out at YBI in the winter months.
The maximum recorded number of harbor seals observed at YBI is 344,
recorded in January 1992. The PIDP is likely to occur in late spring of
2000. According to Kopec and Harvey (1995), the maximum number of seals
observed at the YBI haul-out site during the pupping season (March-
July) was 127 in 1992. More recently, for the same season, the Richmond
Bridge Harbor Seal Survey reported a maximum count of 213 harbor seals
observed in July 1998 (San Francisco State University, unpub. records
1998-9). Kopec and Harvey reported mean harbor seal numbers of 35.7,
41.1, 63.5 and 65.6 during the pupping seasons (March 15-May 31) of
1989 to 1992, respectively (1995). The mean number of harbor seals
observed during the pupping and molting seasons (March 15 to August 15)
in 1998 and 1999 were 75.2 and 78.4, respectively (San Francisco State
University, unpub. records 1998-9). Keeping in mind that these mean
counts were taken for slightly different periods of time (March-July in
1989-1992 and March-August in 1998-1999) and the number of surveys
taken varies by count, the average of the mean counts is 60.
Mitigation
Based upon a recommendation from NMFS, CALTRANS proposes to
establish a 500-m (1640-ft) radius safety zone around the pile driving
site. The safety zone is intended to include all areas where the
underwater sound pressure levels are anticipated to equal or exceed 180
dB re 1 Pa. Once pile driving begins, SPLs will be recorded at
the 500-m contour. The safety zone radius will then be enlarged or
reduced, depending on the actual recorded SPLs.
Before pile driving of a pile segment begins, NMFS-approved
observers on boats will survey the safety zone to ensure that no marine
mammals are seen within the zone. If marine mammals are found within
the safety zone, pile driving of the segment will be delayed until they
move out of the area. If a marine mammal is seen above water and then
dives below, the contractor will wait 15 minutes and if no marine
mammals are observed in that time it will be assumed that the animal
has moved beyond the safety zone. Harbor seals in the Bay are known to
dive for a mean time of 0.50 minutes to 3.33 minutes (Harvey and Torok,
1994). However, due to the limitations of monitoring from a boat, there
can be no assurance that the safety zone will be devoid of all marine
mammals.
If marine mammals enter the safety zone after pile driving of a
segment has commenced, hammering will continue unabated and marine
mammal observers will monitor and record their numbers and behavior.
For reasons mentioned previously, once the pile driving of a segment
begins it cannot be stopped until that segment has reached its
predetermined depth due to the nature of the sediments underlying the
Bay.
NMFS proposes to restrict actual pile driving to times when the
safety zone can be monitored for the entire 15-minute monitoring period
immediately prior to the start-up of pile driving. Also, in order to
obtain information on the behavioral effects to harbor seals and
California sea lions, NMFS proposes to require that a minimum of 50
percent of the pile driving be scheduled during daylight hours.
Daylight pile driving must include both hammer types.
A 500-m (1640-ft) no-entry buffer zone will be established around
the haul-out site on YBI to minimize the impact of project-related
vessel traffic during the PIDP on marine mammals. This buffer zone will
be established in coordination with the U.S. Coast Guard (USCG). The
exclusion zone will be delineated with USCG-compliant temporary buoys
to insure compliance.
[[Page 1087]]
CALTRANS will establish strict standards on vessel speed for all
project-related crafts traveling in the Bay.
The PIDP is expected to take place in late spring 2000. This timing
would not coincide with the period of peak abundance at the YBI harbor
seal haul-out site (November through February). Although harbor seal
pupping and mating season will be ongoing in the Bay during the PIDP,
YBI is not a known pupping site. Harbor seal molting season in the Bay
begins in June. If the PIDP occurs during the harbor seal molting
season, a greater proportion of harbor seals should be hauled out and,
therefore, not subject to the potentially elevated in-water SPLs from
pile driving.
Finally, CALTRANS proposes to use this demonstration period to test
the effectiveness of potential mitigation techniques. One potential
mitigation measure is an underwater sound barrier based on the noise-
attenuating properties of air bubbles in water. At least two
experimental techniques for creating underwater sound barriers will be
tested by CALTRANS. Underwater SPLs will be recorded at various
distances from pile driving activities in order to assess which
measures, if any, prove practical and effective in reducing sound
pressure levels.
Monitoring
Monitoring of the safety zone will be conducted during all active
pile driving. Monitoring of the safety zone will be conducted by a
minimum of three qualified observers. The observers will begin
monitoring at least 30 minutes prior to startup of the pile driving.
Observers will likely conduct the monitoring from small boats, as
observations from a higher vantage point (such as the SF-OBB) may not
be practical.
Observations will be made using binoculars during daylight hours.
For operations at night, infrared or image intensifying equipment will
be used. In addition to monitoring from boats, monitoring of the YBI
haul-out will be conducted on land during all active pile driving. Data
on all observations will be recorded and will include items such as
species, numbers, time of observation, location, behavior, etc.
Both underwater and airborne SPL measurements will be made.
Underwater Sound Monitoring
Waterborne sound from the pile driving will be measured at
approximately four locations. These locations will typically be in some
combination of: (i) close to the pile driving activity, (ii) two mid-
point locations, and (iii) one distant location. Each measuring system
will consist of a hydrophone with charge type conditioning amplifier
connected to a sound level readout device and an instrumentation-grade
digital audio tape (DAT) recorder. ``Real-time'' amplitude DAT
measurements of underwater sound levels will be provided. The
hydrophone will be deployed from a skiff to an appropriate depth at
each location. A portable geostationary positioning system (GPS) unit
will document the location coordinates of the skiff. It is anticipated
that the sound level and frequency spectrum of the recorded noise
signals will also be analyzed in a laboratory subsequent to the test.
Airborne Sound Monitoring
Airborne sound from the pile driving will be measured at
approximately four locations that are coincident with the underwater
measurement locations (i.e., typically a combination of: (i) close to
the pile driving activity, (ii) two mid-point locations, and (iii) one
distant location). In addition, airborne sound will also be measured at
Yerba Buena Island, as close as practicable to the haul-out site. Each
measuring system will consist of a Type 1 Sound Level Meter (SLM)
connected to an instrumentation-grade DAT recorder. ``Real-time''
amplitude measurements of airborne sound levels will be provided. The
SLM will be equipped with a windscreen and tripod mounted on a skiff at
approximately 1.2 meters above water level. As previously stated, a
portable GPS unit will document the location coordinates of the skiff.
It is anticipated that the sound level and frequency spectrum of the
recorded noise signals will be analyzed in a laboratory subsequent to
the test.
Reporting
CALTRANS proposes to notify NMFS prior to the initiation of the
PIDP, and coordination with NMFS will occur on a weekly basis, or more
often, as necessary. NMFS will be informed of the initial sound
pressure levels measurements taken at the 500-m (1640-ft) contour and
the final safety-zone radius established. Monitoring reports will be
faxed to NMFS on a daily basis. The daily report will include species
and numbers of marine mammals observed, time and location of
observation, behavior. In addition the report will include an estimate
of the number of California sea lions and Pacific harbor seals that may
have been harassed as a result of the pile driving activities.
CALTRANS will provide NMFS with a final report detailing the
monitoring protocol, a summary of the data recorded during monitoring,
an estimate of the numbers of marine mammals that may have been
harassed due to pile driving, and conclusions drawn from measurements
with and without the attenuation measures.
Preliminary Conclusions
Based on the previous discussion, NMFS has preliminarily determined
that the PIDP may unintentionally cause the harassment of California
sea lions and Pacific harbor seals. Although CALTRANS has requested an
authorization for Level B harassment, as a result of a behavioral
modification to avoid either pile driving noise or human activity, NMFS
notes that, on occasion, monitoring the safety zone may not be 100
percent effective. As a result, some harbor seals or California sea
lions, while underwater in the vicinity of the PIDP, may incur levels
above 180 dB re 1 Pa. At and above an SPL of this level,
marine mammals may incur a temporary threshold shift (TTS) in hearing,
lasting from a few minutes to a few hours. NMFS considers TTS to
constitute Level A harassment (see Sec. 216.3 for a definition of Level
A and Level B harassment).
[[Page 1088]]
The PIDP is expected to have no more than an insignificant impact
to marine mammals or their habitat. Harbor seals on YBI are commonly
subjected to high levels of disturbance, primarily from watercraft,
especially during the summer, when the numbers of small boats, jet
skis, kayaks, etc. in the Bay increase. Abandonment of the haul-out
site is not anticipated as sound levels from pile driving, both in
water and in air, are expected to attenuate to sufficiently low levels
by the time the SPLs reach the YBI haulout site. Although harbor seal
pups have been observed at the YBI haul-out site, it is not a
recognized pupping site and, therefore, no significant impacts on
species recruitment are anticipated. Other haul-out sites for sea lions
and harbor seals area are at a sufficient distance from the project
site that they will not be affected.
Proposed Authorization
NMFS proposes to issue an incidental harassment authorization to
CALTRANS for the possible harassment of small numbers of harbor seals
and California sea lions incidental to a PIDP at the SF-OBB, provided
the previously mentioned mitigation, monitoring and reporting
requirements are incorporated. NMFS has preliminarily determined that
the proposed activities would result
in the harassment (as defined in the MMPA) of only small numbers of
harbor seals and California sea lions and will have no more than a
negligible impact on these marine mammal stocks.
Information Solicited
NMFS requests interested persons to submit comments, information,
and suggestions concerning this request (see ADDRESSES).
Dated: December 28, 1999.
Ann D. Terbush,
Acting Director, Office of Protected Resources, National Marine
Fisheries Service.
[FR Doc. 00-405 Filed 1-6-00; 8:45 am]
BILLING CODE 3510-22-F
