[Federal Register: December 12, 2005 (Volume 70, Number 237)]
[Proposed Rules]
[Page 73426-73429]
>From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr12de05-25]
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DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric Administration
50 CFR Part 216
[Docket No. 051110296-5296-01; I.D. 102405A]
RIN 0648-AU02
Protecting Spinner Dolphins in the Main Hawaiian Islands From
Human Activities that Cause ``Take,'' as Defined in the Marine Mammal
Protection Act and Its Implementing Regulations, or To Otherwise
Adversely Affect the Dolphins
AGENCY: National Marine Fisheries Service (NMFS), National Oceanic and
Atmospheric Administration (NOAA), Commerce.
ACTION: Advance notice of proposed rulemaking.
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SUMMARY: NMFS is considering whether to propose regulations to protect
wild spinner dolphins (Stenella longirostris) in the main Hawaiian
Islands from ``take,'' as defined in the Marine Mammal Protection Act
(MMPA) and its implementing regulations, or to otherwise adversely
affect the dolphins. The scope of this advance notice of proposed
rulemaking (ANPR) encompasses the activities of any person or
conveyance that may result in the unauthorized taking of spinner
dolphins and/or that may diminish the value to the dolphins of habitat
routinely used by them for resting and/or that may cause detrimental
individual-level and population-level impacts. The proposed regulation
would apply only to the main Hawaiian Islands and only to spinner
dolphins. NMFS requests comments on whether--and if so, what type of--
conservation measures, regulations, and, if necessary, other measures
would be appropriate to protect spinner dolphins in the main Hawaiian
Islands from the effects of these activities.
DATES: Comments must be received at the appropriate address (see
ADDRESSES) no later than January 11, 2006.
ADDRESSES: You may submit comments by any of the following methods:
E-mail: [EMAIL PROTECTED] Include in the subject
line the following document identifier: 0648-AU02-NOA.
Federal e-rulemaking Portal: http://www.regulations.gov
<http://frwebgate.access.gpo.gov/cgi-bin/leaving.cgi?from=leavingFR.html&log
=linklog&to=http://www.regulations.gov> .
Mail: Marine Mammal Branch Chief, Protected Resources
Division, Pacific Islands Regional Office, National Marine Fisheries
Service, 1601 Kapiolani Boulevard, Suite 1110, Honolulu, HI 96814.
FOR FURTHER INFORMATION CONTACT: Chris Yates or Jennifer Sepez, Pacific
Islands Regional Office, 808-944-2105; or Trevor Spradlin, Office of
Protected Resources, 301-713-2322.
SUPPLEMENTARY INFORMATION:
Background
Viewing wild marine mammals in Hawaii is a popular recreational
activity for both tourists and residents alike. In the past, most
recreational viewing focused on humpback whales (Megaptera
novaeangliae) during the winter months when the whales migrate from
their feeding grounds off the coast of Alaska to Hawaii's warm and
protected waters to breed and calve. However, in recent years,
recreational activities have increasingly focused on viewing small
cetaceans, with a particular emphasis on spinner dolphins (Stenella
longirostris), which are routinely found close to shore in shallow
coves and bays and other areas throughout the main Hawaiian Islands.
NMFS is concerned that some of these activities cause unauthorized
taking of dolphins, diminish the value to the dolphins of habitat
routinely used by them for resting, and cause detrimental individual-
level and population-level impacts.
The biology and behavior of Hawaiian spinner dolphins has been well
documented in the scientific literature. Hawaiian spinner dolphins are
identified as a race of Pacific spinner dolphins found in and around
the Hawaiian Islands, including both the main Islands of Hawaii and the
Northwestern Hawaiian Islands (Norris et al. 1994, page 17). Hawaiian
spinner dolphins routinely utilize shallow coves and bays and other
areas close to shore during the day to rest, care for their young and
avoid predators before traveling to deeper water at night to hunt for
food (W[uuml]rsig et al. 1994, Norris 1994). As the dolphins begin or
end their resting period, they engage in aerial spinning and leaping
behaviors that are noticeable from shore (W[uuml]rsig et al. 1994).
However, when they are in a period of deep rest, their behavior
consists of synchronous dives and extended periods swimming in quiet
formation along the shallow bottom (see: Norris and Dohl 1980, Norris
et al. 1985, Wells and Norris 1994, W[uuml]rsig et al. 1994).
Scientific research studies have documented human disturbance of
Hawaiian spinner dolphins during their resting periods along the west
coast of the Big Island of Hawaii, most notably in and around
Kealakekua Bay. Norris and Dohl (1980) noted that ``cruise boats''
would seek out and run through groups of spinner dolphins during an
initial study of the dolphins in 1970, and in follow up research,
Norris et al. (1985) found that spinner dolphins were particularly
sensitive to disturbance during the early stage of their entry into the
bay. Forest (2001) compared sightings records of spinner dolphins in
Kealakekua Bay from 1979-1980 and 1993-1994, and found that the
dolphins were utilizing the bay and engaging in aerial behaviors less
frequently than before, and suggested increasing human disturbance as a
cause. Courbis (2004) reported high levels of vessel and swimmer
traffic in Kealakekua Bay and neighboring Honaunau Bay and Kauhako Bay,
and found that spinner dolphins exhibited decreased aerial activity
during their entry and exit into Kealakekua Bay when compared to
previous studies, as well as increased aerial activity during mid-day
when dolphins typically rest. Spinner dolphins in Kealakekua Bay also
appeared to have shifted their preferred resting area in response to
vessel and swimmer presence. In Kauhako Bay, dolphins were documented
avoiding swimmers and leaving the bay in response to being followed, while
in Honaunau Bay, dolphins were
documented to spend more time at the mouth of the bay or in deep water
at the center of the bay when swimmers were present. [Ouml]stman-Lind
et al. (2004) found that human disturbance was highest in mid-morning
when spinner dolphins begin their rest period, and that secondary
resting areas with less vessel traffic were utilized more than had been
previously observed, and suggested the dolphins have been displaced
from their primary resting areas. In addition, Ross (2001) found that
Hawaiian spinner dolphins around Midway Atoll in the Northwest Hawaiian
Islands exhibited short-term behavioral changes in response to vessels
at distances of 300 meters and 100 meters.
NMFS is concerned that displacement from primary resting areas has
the potential for adverse impacts on the dolphins for a number of
reasons, including that these secondary resting areas may not provide
for the same quality of rest and protection that primary areas do and
that the activities that displaced the dolphins from primary areas are
likely to follow them. NMFS scientists are concerned about the
potential for individual-level and population-level effects because of
anthropogenic activities. NMFS has received an increasing number of
complaints from constituents alleging that spinner dolphins in the main
Hawaiian Islands are routinely being disturbed by people attempting to
closely approach and interact with the dolphins by vessel (motor
powered or kayak) or in the water (``swim-with-wild-dolphin''
activities). Concerns have been expressed by officials from the Hawaii
Department of Land and Natural Resources and the U.S. Marine Mammal
Commission, as well as representatives of the Native Hawaiian
community, scientific researchers, wildlife conservation organizations,
public display organizations, and some commercial tour operators.
Additionally, there are growing public safety concerns associated
with human-dolphin interactions. Although there are no known reports of
Hawaiian spinner dolphins injuring humans, people have been seriously
injured while trying to interact with various species of marine mammals
in the wild, including species of dolphins (Webb 1978, Shane et al.
1993, NMFS 1994, Wilson 1994, Orams et al. 1996, Seideman 1997,
Christie 1998, Santos 1997, Samuels and Bejder 1998, Samuels and Bejder
2004, Samuels et al. 2000). In addition, researchers have documented
Hawaiian spinner dolphins behaving aggressively towards people in the
water by charging and making threat displays (Norris et al. 1985,
Johnson and Norris 1994). There is also a potential risk of shark
attack, since sharks prey upon spinner dolphins and often are seen with
them along the coast (Johnson and Norris 1994, Norris 1994). In June
2003, an adult male swimmer was attacked by a shark while trying to
swim with spinner dolphins off the coast of Oahu. The man suffered
injuries to his leg, which required medical attention (Hoover and
Espanol 2003).
NMFS encourages members of the public to view and enjoy spinner
dolphins in the main Hawaiian Islands in ways that are consistent with
the provisions of the MMPA, and supports responsible wildlife viewing
as articulated in agency guidelines (see Web citations below). NMFS is
concerned that some activities occurring in Hawaii are not in
accordance with these guidelines, and cause unauthorized taking of
spinner dolphins, diminish the value to the dolphins of habitat
routinely used by them for resting, or cause detrimental individual-
level and population-level impacts to these dolphins.
Current MMPA Prohibitions and NMFS Guidelines and Regulations
The Marine Mammal Protection Act, 16 U.S.C. 1361 et seq., generally
prohibits the ``take'' of marine mammals. Section 3(13) of the MMPA
defines the term ``take'' as ``to harass, hunt, capture, or kill, or
attempt to harass, hunt, capture, or kill any marine mammal.'' Except
with respect to military readiness activities and certain scientific
research activities, the MMPA defines the term ``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].''
In addition, NMFS regulations implementing the MMPA further
describe the term ``take'' to include: ``the negligent or intentional
operation of an aircraft or vessel, or the doing of any other negligent
or intentional act which results in disturbing or molesting a marine
mammal; and feeding or attempting to feed a marine mammal in the wild''
(50 CFR 216.3). The MMPA provides limited exceptions to the prohibition
on ``take'' for activities such as scientific research, public display,
and incidental take in commercial fisheries. Such activities require a
permit or authorization, which may be issued only after a thorough
agency review.
Although Hawaiian spinner dolphins are not a listed species under
the Endangered Species Act (ESA), there are specific regulations for
some ESA-listed marine mammals which address interactions with humans
in the wild. These regulations prohibit approaches within 3 nautical
miles (5.5 km) of particular Steller sea lion rookeries in the Aleutian
Islands and Gulf of Alaska (50 CFR 223.202), approaches closer than 100
yards (91.4 m) to humpback whales in Hawaii, approaches closer than 100
yards (91.4 m) to humpback whales in Alaska, and approaches closer than
500 yards (460 m) to right whales in the North Atlantic (50 CFR
224.103). Documentation for these latter two regulations (66 FR 29502,
May 31, 2001, and 62 FR 6729, February 13, 1997) cites rulemaking
authority under both the ESA and the MMPA.
For both ESA-listed species and for MMPA-protected species,
wildlife viewing must be conducted in a manner that does not cause
``take.'' This is consistent with the philosophy of responsible
wildlife viewing advocated by many federal agencies to unobtrusively
observe the natural behavior of wild animals in their habitats without
causing disturbance (see http://www.watchablewildlife.org/
<http://frwebgate.access.gpo.gov/cgi-bin/leaving.cgi?from=leavingFR.html&log
=linklog&to=http://www.watchablewildlife.org/> and
http://www.watchablewildlife
<http://frwebgate.access.gpo.gov/cgi-bin/leaving.cgi?from=leavingFR.html&log
=linklog&to=http://www.watchablewildlife>
.org/publications/marine--wild life--viewing--
ng--
Each of the six NMFS Regions has developed recommended viewing
guidelines to educate the general public on how to responsibly view
marine mammals in the wild and avoid causing a ``take.'' These
guidelines are available on line at: http://www.nmfs.noaa.gov/
<http://frwebgate.access.gpo.gov/cgi-bin/leaving.cgi?from=leavingFR.html&log
=linklog&to=http://www.nmfs.noaa.gov/> prot--
res/MMWatch/MMViewing.html. The guidelines developed by the NMFS
Pacific Islands Regional Office for marine mammals in Hawaii are also
available at: http://www.nmfs.noaa.gov/prot_res/MMWatch/hawaii.htm
<http://frwebgate.access.gpo.gov/cgi-bin/leaving.cgi?from=leavingFR.html&log
=linklog&to=http://www.nmfs.noaa.gov/prot_res/MMWatch/hawaii.htm> .
The Regional Office viewing guidelines for Hawaii recommend that people
view wild dolphins from a safe distance of at least 50 yards (45 m) and
refrain from trying to chase, closely approach, surround, swim with, or
touch the animals. To support the guidelines in Hawaii, NMFS has
partnered with the State of Hawaii and the Hawaiian Islands Humpback
Whale National Marine Sanctuary over the past several years to promote
safe and responsible wildlife viewing practices through the development
of outreach materials, training workshops and public service
announcements. NMFS' education and outreach efforts have also been
supported by a partnership with the Watchable Wildlife program, a
consortium of Federal and State wildlife agencies and wildlife interest
groups that encourages passive viewing of wildlife from a distance for
the safety and well-being of both animals and people (Duda 1995,
Oberbillig 2000).
However, despite the regulations, guidelines and outreach efforts,
interactions through swim-with-dolphins programs continue to occur and
are increasing in Hawaii. Advertisements on the Internet and in local
media in Hawaii promote activities that contradict the NMFS guidelines.
NMFS has received letters from the Marine Mammal Commission (MMC),
members of the scientific research community, environmental groups, the
public display community, and members of the general public expressing
the view that swimming with and other types of interactions with wild
marine mammals have the potential to harass and/or disturb the animals
by causing injury or disruption of normal behavior patterns. NMFS has
also received inquiries from members of the public and commercial tour
operators requesting clarification on NMFS' policy on these matters.
The MMC sponsored a literature review by Samuels et al. (2000) to
compile information regarding human interactions with wild dolphins.
Upon review of the report, the MMC stated:
The information and analyses in the report provide compelling
evidence that any efforts to interact intentionally with dolphins in
the wild are likely to result in at least Level B harassment and, in
some cases, could result in the death or injury of both people and
marine mammals.
The MMC subsequently recommended that NMFS ``promulgate regulations
specifying that any activity intended to enable in-water interactions
between humans and dolphins in the wild constitutes a taking and is
prohibited'' (Letter from MMC to NMFS dated May 23, 2000).
In 2002, NMFS published an ANPR requesting comments from the public
on what types of regulations and other measures would be appropriate to
prevent harassment of marine mammals in the wild caused by human
activities directed at the animals (67 FR 4379, January 30, 2002). The
2002 ANPR was national in scope and covered all species of marine
mammals under NMFS' jurisdiction (whales, dolphins, porpoises, seals
and sea lions), and requested comments on ways to address concerns
about the public and commercial operators closely approaching, swimming
with, touching or otherwise interacting with marine mammals in the
wild. Several potential options were proposed for consideration and
comment, including: (1) Codifying the current NMFS Regional marine
mammal viewing guidelines into regulations; (2) codifying the
guidelines into regulations with additional improvements; (3)
establishing minimum approach rules similar to the ones under the ESA
regulations for humpback whales in Hawaii and Alaska and North Atlantic
right whales; and (4) restricting activities of concern similar to the
MMPA regulation prohibiting the public from feeding or attempting to
feed wild marine mammals. The 2002 ANPR specifically mentioned the
concerns about Hawaiian spinner dolphins and increasing human
interactions. Over 500 comments were received on the 2002 ANPR
regarding human interactions with wild marine mammals in United States
waters and along the nation's coastlines. A portion of the comments
specifically addressed Hawaii concerns and recommended a wide spectrum
of measures from no action to restricting swim with activities through
regulations or time-area closures.
Request for Comments
NMFS is requesting comments on whether --and if so, what type of--
conservation measures, regulations, and, if necessary, other measures
would be appropriate to protect spinner dolphins in the main Hawaiian
Islands from human activities that result in the unauthorized taking of
spinner dolphins and/or that may diminish the value to the dolphins of
habitat routinely used by them for resting and/or that may cause
detrimental individual-level and population-level impacts. If a rule
were proposed, the agency could further delineate the definition of
``take'' in the Code of Federal Regulations for situations involving
Hawaiian spinner dolphins, focusing on the take of individual dolphins.
The agency could also design regulations to address possible adverse
effects at the population level, where repeated intrusions into resting
areas cumulatively have the potential to disrupt the behavioral
patterns within the population of dolphins and/or have the potential to
injure the stock as a whole through displacement of animals from their
preferred habitat. The agency could also act to protect essential
habitats, including mating grounds and areas of similar significance to
the dolphins.
NMFS offers several possible options for consideration and comment:
Codify the current NMFS Pacific Islands Regional Office's marine
mammal viewing guidelines--Codifying the guidelines as regulations
would make them requirements rather than recommendations, and would
provide for enforcement of these provisions and penalties for
violations.
Codify the current NMFS Pacific Islands Regional Office's marine
mammal viewing guidelines with improvements--The current guidelines
could be revised to more clearly address specific activities of
concern, such as those discussed below, and then codified as
enforceable regulations.
Establish minimum approach rule--Similar to the minimum approach
rules for humpback whales in Hawaii and Alaska, and right whales in the
North Atlantic (50 CFR 224.103; 66 FR 29502, May 31, 2001), a limit
could be established by regulation to accommodate a reasonable level of
dolphin viewing opportunities while minimizing the potential
detrimental impacts from humans. If establishing a minimum approach
rule is appropriate, then NMFS would have to consider whether the
current guideline of 50 yards is appropriate for this regulation. NMFS
would consider exceptions for situations in which marine mammals
approach vessels or humans as well as other situations in which
approach is not reasonably avoidable.
Restrict individual activities of concern--Similar to the
prohibition on feeding wild marine mammals (50 CFR 216.3), a regulation
further delineating the definition of ``take'' for the case of Hawaiian
spinner dolphins could clarify which specific activities are
prohibited. Such activities could include actions engaged in by
individuals, e.g., swimming with, touching (either directly or with an
object), or otherwise acting on or with a Hawaiian spinner dolphin in
the wild. It could also include operating a vessel or providing other
platforms from which such interactions are conducted or supported.
Restrict vessel activities of concern--Activities of concern
engaged in by vessels could also be prohibited through a regulation
further delineating the definition of ``take'' for the case of Hawaiian
spinner dolphins. These activities of concern could include actions
engaged in by vessels, e.g., the use of vessels to herd dolphins,
surround dolphins, or otherwise prevent a reasonable means of escape,
to ``leapfrog'' dolphins by positioning in their predictable paths,
separate calves from attending adults, approach at or above specified
speeds, or to ``run through'' a group of dolphins in order to elicit
bow-wake riding.
Establish time-area closures in resting bays--Similar to the
prohibitions used to protect fish stocks or habitat, a regulation
restricting human access to specific areas could be established. These
restrictions could be for full-time, or limited to certain times of the
day when dolphins have the most potential to be present. They could:
restrict all human entry to the area; restrict only specified types of
activities; restrict human access to an entire area or a particular
zone within an area; or a closure could be any combination of the above
parameters.
NMFS also recognizes that the most appropriate regulations may be
some combination of the above measures, or that additional
possibilities may exist.
The geographic scope of these regulations, if proposed, would be
the near shore habitats off the main Hawaiian Islands, including the
Big Island of Hawaii, Maui, Kohoolawe, Lanai, Molokai, Oahu, Kauai, and
Niihau, and their nearby land or land-like masses (e.g., Molokini,
Kaohiakipu, etc.). These are the locations where activities of concern
are concentrated. The Northwestern Hawaiian Islands (NWHI) do not
currently have a significant level of activities of concern, and NMFS
feels the remoteness of these islands makes it unlikely that they will
develop at significant levels in the future. In addition, a marine
sanctuary is contemplated which would encompass the NWHI. NMFS requests
comments on the geographic scope of this ANPR, including whether the
agency should be considering a larger or smaller overall geographic
scope to protect Hawaiian spinner dolphins.
NMFS invites comment on the above options and other possible
measures that will help the agency decide what type of regulations, if
any, would be most appropriate to consider for protecting spinner
dolphins in the main Hawaiian Islands from human activities that cause
unauthorized taking of spinner dolphins, diminish the value to the
dolphins of habitat routinely used by them for resting, or cause
detrimental individual-level and population-level impacts to these
dolphins.
Classification
This advance notice of proposed rulemaking was determined to be
significant for purposes of E.O. 12866.
Dated: December 6, 2005.
William T. Hogarth,
Assistant Administrator for Fisheries, National Marine Fisheries
Service.
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longirostris, to boat presenece in Midway Atoll. Masters Thesis, San
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[FR Doc. 05-23928 Filed 12-9-05; 8:45 am]
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