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Section 7 Consultation Biological Opinion and Incidental Take Statement October 2001

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Section 7 Consultation Biological Opinion and Incidental Take Statement October 2001 Endangered Species Act - Section 7 Consultation Biological Opinion and Incidental Take Statement October 2001 Agency: National Marine Fisheries Service Alaska Region Sustainable Fisheries Division Activities Considered: Authorization of Bering Sea/Aleutian Islands groundfish fisheries based on the Fishery Management Plan for the Bering Sea/Aleutian Islands Groundfish as modified by amendments 61 and 70; and Authorization of Gulf of Alaska groundfish fisheries based on the Fishery Management Plan for Groundfish of the Gulf of Alaska as modified by amendments 61 and 70. Parallel fisheries for pollock, Pacific cod, and Atka mackerel, as authorized by the State of Alaska within 3 nm of shore. Consultation By: National Marine Fisheries Service Protected Resources Division Issued: Approved by: TABLE OF CONTENTS 1 BACKGROUND INFORMATION AND CONSULTATION HISTORY ................. 6 1.1 Comments on the draft biological opinion of August 2001....................... 7 1.2 Relation to Other Biological Opinions ...................................... 7 1.3 Consultation History .................................................... 8 1.4 Unpublished Papers .................................................... 10 1.5 The Council’s RPA Committee ........................................... 12 1.6 Environmental Impact Statement.......................................... 12 1.7 Meetings with State and Tribal Representatives .............................. 13 1.8 The Steller Sea Lion Recovery Team ...................................... 13 1.9 Background on Jeopardy and Adverse Modification of Critical Habitat ........... 14 2 DESCRIPTION OF THE PROPOSED ACTION ................................... 18 2.1 Objectives of the Proposed Action ........................................ 18 2.2 Action Area .......................................................... 19 2.2.1 Atka Mackerel Fishery Area ....................................... 19 2.2.2 Pollock Fishery Area ............................................ 20 2.2.3 Pacific Cod Fishery Area ......................................... 21 2.3 Description of the Proposed Action ........................................ 21 2.3.1 Amendment 61/61: The American Fisheries Act (AFA) ................. 21 2.3.2 Amendments 70/70: Steller Sea Lion Protection Measures .............. 24 3 STATUS OF SPECIES AND CRITICAL HABITAT ................................ 31 3.1 Species Description and Listing Status ..................................... 31 3.2 Critical Habitat........................................................ 32 3.2.1 Designation of Critical Habitat - August 27, 1993 ...................... 32 3.2.2 Description of Designated Critical Habitat (50 CFR §226.202) ........... 35 3.2.2.1 Additional Areas Important to the Conservation of Steller Sea Lions ....................................................... 37 3.2.3 Essential Features of Critical Habitat in the Action Area ................ 43 3.2.3.1 Terrestrial habitat ......................................... 43 3.2.3.2 Foraging habitat .......................................... 44 3.3 Population Distribution ................................................. 46 3.4 Population Dynamics and Risks .......................................... 47 3.4.1 Population Trends ............................................... 47 3.4.2 Population Variability and Stability ................................. 51 3.4.3 Population Projections ........................................... 52 3.5 Life History Characteristics and Foraging Requirements ....................... 52 3.6 Overview of Current and Future Steller Sea Lion Research Programs ............. 57 3.6.1 Current Research Programs ....................................... 57 3.6.2 Future Research Programs ........................................ 65 3.6.3 Expectations for Information from New Research Programs .............. 66 October 2001 Table of Contents–Page 2 4 ENVIRONMENTAL BASELINE ............................................... 68 4.1 Description of the Action Area ........................................... 68 4.2 Biological Requirements In the Action Area................................. 68 4.2.1 Essential Features of Critical Habitat ................................ 68 4.2.1.1 Haulout and Pupping Areas ................................. 68 4.2.1.3 Juvenile Foraging Areas ................................... 69 4.2.1.4 Adult Foraging Areas ..................................... 69 4.2.1.5 Transit Routes ........................................... 71 4.2.2 Adequacy of Essential Features of Critical Habitat ..................... 71 4.3 Overview of the Decline of the Steller Sea Lion.............................. 72 4.3.1 Phases of the Decline ............................................ 72 4.3.2 Possible Factors Contributing to the Decline .......................... 74 4.3.3 Lack of Sufficient Information to Determine Causal Factors in the Current Decline ....................................................... 76 4.4 Factors Affecting Species’ Environment in the Action Area .................... 76 4.4.1 Environmental Change in the Action Area ............................ 76 4.4.1.1 Natural Climatic Variability and the Regime Shift Hypothesis ..... 77 4.4.1.2 Impacts on Biological Productivity and Steller Sea Lions ......... 77 4.4.1.3 Possible Changes in the Carrying Capacity of the Bering Sea and Gulf of Alaska ................................................. 79 4.4.2 Predation by Killer Whales and Sharks .............................. 80 4.4.2.1 Predation by Killer Whales ................................. 80 4.4.2.2 Predation by Sharks ....................................... 85 4.4.3 Effects of Commercial Fisheries in the Action Area .................... 85 4.4.3.1 Direct Effects of Commercial Fisheries ....................... 91 4.4.3.2 Indirect Effects of Commercial Fisheries ...................... 91 4.4.3.2.1 Indirect Effects on Steller Sea Lions - Competition for Prey ................................................ 92 4.4.3.2.2 Indirect effects on Water Quality .................... 96 4.4.3.2.3 Indirect effects on Critical Habitat for Steller Sea Lions . 97 4.4.3.3 Effects of Alaska State Managed Fisheries ..................... 98 4.4.4 Effects of Intentional Take of Steller Sea Lions ....................... 107 4.4.4.1 Subsistence Harvest ...................................... 107 4.4.4.2 Commercial Steller Sea Lion Harvest ........................ 108 4.4.4.3 Intentional Take of Steller Sea Lions ........................ 108 4.4.4.4 Research Takes ......................................... 109 4.4.5 Impacts of Human Population Growth in the Action Area .............. 109 4.4.6 Impacts of Oil and Gas Development ............................... 111 4.5 Synthesis of the Effects ................................................ 111 4.5.1 Summary of the Direct Takes of Steller Sea Lions in the Action Area ..... 112 4.5.2 Discussion of Other Potential Sources of Losses to the Steller Sea Lion Population .................................................... 113 4.6 Comparison to Other Pinnipeds Around the World: Review of Responses of Pinniped Populations to Local Prey Depletion ...................................... 115 4.6.1 Long-term, gradual declines or changes in reproductive performance ..... 115 4.6.1.1 Southern elephant seals - Macquarie Island and Îles Kerguelen stocks ...................................................... 115 4.6.1.2 Discussion of potential causes of decline for southern elephant seals October 2001 Table of Contents–Page 3 ...................................................... 117 4.6.1.3 Summary of causes of decline for southern elephant seals ........ 121 4.6.2 Antarctic fur seals at South Georgia ................................ 122 4.6.2.1 Description of the population dynamics of Antarctic fur seals ..... 122 4.6.2.2 Effect of prey availability on reproductive performance of fur seals ...................................................... 122 4.6.2.3 Discussion of causes for the decline at Bird Island and reproductive effects elsewhere ........................................ 123 4.6.2.4 Summary of effects of prey depletion on Antarctic fur seals ...... 124 4.6.3 Grey Seals, Harbor Seals and the North Sea Industrial Sandeel Fishery .... 124 4.6.4 South American Sea Lions in Argentina and the Falkland Islands ........ 125 4.6.5 Short-term Catastrophic Events ................................... 126 4.6.5.1 Harp seals in the Barents Sea .............................. 126 4.6.6 El Nio ...................................................... 128 4.6.6.1 Cape fur seals in the Benguela System, Namibia ............... 129 4.6.7 Summary ..................................................... 130 5 EFFECTS OF THE FEDERAL ACTION ........................................ 132 5.1 Approach to the Assessment ............................................ 132 5.1.1 Types of Decision Making Error .................................. 133 5.1.2 Evidence Available for the Assessment ............................. 134 5.2 Information on Steller Sea Lion Movement Patterns Using Satellite Telemetry .... 134 5.2.1 Summary of Steller Sea Lion Research Using Satellite Telemetry ........ 135 5.2.1.1 Deployment Background and History ........................ 135 5.2.1.2 Previous Use of Telemetry Information ...................... 136 5.2.1.3 Telemetry Information Provided During the RPA Committee Process (Spring 2001) ........................................... 137 5.2.1.4 Further Discussion on Satellite Telemetry Information
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