Rule2021-16452
Marine Mammals; Incidental Take During Specified Activities; North Slope, Alaska
Primary source
Metadata and text below are from the Federal Register, a public-domain U.S. government work. Always verify the official published version before relying on it for any legal matter.
Published
August 5, 2021
Effective
August 5, 2021
Issuing agencies
Interior DepartmentFish and Wildlife Service
Abstract
We, the U.S. Fish and Wildlife Service, in response to a request from the Alaska Oil and Gas Association, finalize regulations authorizing the nonlethal, incidental, unintentional take by harassment of small numbers of polar bears and Pacific walruses during year-round oil and gas industry activities in the Beaufort Sea (Alaska and the Outer Continental Shelf) and adjacent northern coast of Alaska. Take may result from oil and gas exploration, development, production, and transportation activities occurring for a period of 5 years. These activities are similar to those covered by the previous 5-year Beaufort Sea incidental take regulations effective from August 5, 2016, through August 5, 2021. This rule authorizes take by harassment only. No lethal take is authorized. We will issue Letters of Authorization, upon request, for specific activities in accordance with these regulations.
Full Text
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[Federal Register Volume 86, Number 148 (Thursday, August 5, 2021)]
[Rules and Regulations]
[Pages 42982-43074]
From the Federal Register Online via the Government Publishing Office [<a href="http://www.gpo.gov">www.gpo.gov</a>]
[FR Doc No: 2021-16452]
[[Page 42981]]
Vol. 86
Thursday,
No. 148
August 5, 2021
Part II
Department of the Interior
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Fish and Wildlife Service
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50 CFR Part 18
Marine Mammals; Incidental Take During Specified Activities; North
Slope, Alaska; Final Rule
Federal Register / Vol. 86 , No. 148 / Thursday, August 5, 2021 /
Rules and Regulations
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DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
50 CFR Part 18
Docket No. FWS-R7-ES-2021-0037; FXES111607MRG01-212-FF07CAMM00]
RIN 1018-BF13
Marine Mammals; Incidental Take During Specified Activities;
North Slope, Alaska
AGENCY: Fish and Wildlife Service, Interior.
ACTION: Final rule.
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SUMMARY: We, the U.S. Fish and Wildlife Service, in response to a
request from the Alaska Oil and Gas Association, finalize regulations
authorizing the nonlethal, incidental, unintentional take by harassment
of small numbers of polar bears and Pacific walruses during year-round
oil and gas industry activities in the Beaufort Sea (Alaska and the
Outer Continental Shelf) and adjacent northern coast of Alaska. Take
may result from oil and gas exploration, development, production, and
transportation activities occurring for a period of 5 years. These
activities are similar to those covered by the previous 5-year Beaufort
Sea incidental take regulations effective from August 5, 2016, through
August 5, 2021. This rule authorizes take by harassment only. No lethal
take is authorized. We will issue Letters of Authorization, upon
request, for specific activities in accordance with these regulations.
DATES: This rule is effective August 5, 2021, and remains effective
through August 5, 2026.
ADDRESSES: You may view this rule, the associated final environmental
assessment and U.S. Fish and Wildlife Service finding of no significant
impact (FONSI), and other supporting material at <a href="http://www.regulations.gov">http://www.regulations.gov</a> under Docket No. FWS-R7-ES-2021-0037, or these
documents may be requested as described under FOR FURTHER INFORMATION
CONTACT.
FOR FURTHER INFORMATION CONTACT: Marine Mammals Management, U.S. Fish
and Wildlife Service, 1011 East Tudor Road, MS-341, Anchorage, AK
99503, Telephone 907-786-3844, or Email: <a href="/cdn-cgi/l/email-protection#3163065c5c5c435456445d50455e4348715746421f565e47"><span class="__cf_email__" data-cfemail="0351346e6e6e716664766f62776c717a436574702d646c75">[email protected]</span></a>.
Persons who use a telecommunications device for the deaf (TDD) may call
the Federal Relay Service (FRS) at 1-800-877-8339, 24 hours a day, 7
days a week.
SUPPLEMENTARY INFORMATION:
Immediate Promulgation
In accordance with the Administrative Procedure Act (APA; 5 U.S.C.
553(d)(3)), we find that we have good cause to make this rule effective
less than 30 days after publication. Immediate promulgation of the rule
will ensure that the applicant will implement mitigation measures and
monitoring programs in the geographic region that reduce the risk of
harassment of polar bears (Ursus maritimus) and Pacific walruses
(Odobenus rosmarus divergens) by their activities.
Executive Summary
In accordance with the Marine Mammal Protection Act (MMPA) of 1972,
as amended, and its implementing regulations, we, the U.S. Fish and
Wildlife Service (Service or we), finalize incidental take regulations
(ITRs) that authorize the nonlethal, incidental, unintentional take of
small numbers of Pacific walruses and polar bears during oil and gas
industry (hereafter referred to as ``Industry'') activities in the
Beaufort Sea and adjacent northern coast of Alaska, not including lands
within the Arctic National Wildlife Refuge, for a 5-year period.
Industry operations include similar types of activities covered by the
previous 5-year Beaufort Sea ITRs effective from August 5, 2016,
through August 5, 2021 (81 FR 52276).
This rule is based on our findings that the total takings of
Pacific walruses (walruses) and polar bears during Industry activities
will impact no more than small numbers of animals, will have a
negligible impact on these species or stocks, and will not have an
unmitigable adverse impact on the availability of these species or
stocks for taking for subsistence uses by Alaska Natives. We base our
findings on past and proposed future monitoring of the encounters and
interactions between these species and Industry; species research; oil
spill risk assessments; potential and documented Industry effects on
these species; natural history and conservation status information of
these species; and data reported from Alaska Native subsistence
hunters. We have prepared a National Environmental Policy Act (NEPA)
environmental assessment (EA) in conjunction with this rulemaking and
determined that this final action will result in a finding of no
significant impact (FONSI).
These regulations include permissible methods of nonlethal taking;
mitigation measures to ensure that Industry activities will have the
least practicable adverse impact on the species or stock, their
habitat, and their availability for subsistence uses; and requirements
for monitoring and reporting. Compliance with this rule is not expected
to result in significant additional costs to Industry, and any costs
are minimal in comparison to those related to actual oil and gas
exploration, development, and production operations.
Background
Section 101(a)(5)(A) of the Marine Mammal Protection Act (MMPA; 16
U.S.C. 1371(a)(5)(A)) gives the Secretary of the Interior (Secretary)
the authority to allow the incidental, but not intentional, taking of
small numbers of marine mammals, in response to requests by U.S.
citizens (as defined in 50 CFR 18.27(c)) engaged in a specified
activity (other than commercial fishing) within a specified geographic
region. The Secretary has delegated authority for implementation of the
MMPA to the U.S. Fish and Wildlife Service. According to the MMPA, the
Service shall allow this incidental taking if we find the total of such
taking for a 5-year period or less:
(1) Will affect only small numbers of marine mammals of a species
or population stock;
(2) will have no more than a negligible impact on such species or
stocks;
(3) will not have an unmitigable adverse impact on the availability
of such species or stocks for taking for subsistence use by Alaska
Natives; and
(4) we issue regulations that set forth:
(a) Permissible methods of taking;
(b) other means of effecting the least practicable adverse impact
on the species or stock and its habitat, and on the availability of
such species or stock for subsistence uses; and
(c) requirements for monitoring and reporting of such taking.
If final regulations allowing such incidental taking are issued, we
may then subsequently issue Letters of Authorization (LOAs), upon
request, to authorize incidental take during the specified activities.
The term ``take'' as defined by the MMPA, means to harass, hunt,
capture, or kill, or attempt to harass, hunt, capture, or kill any
marine mammal (16 U.S.C. 1362(13)). Harassment, as defined by the MMPA,
for activities other than military readiness activities or scientific
research conducted by or on behalf of the Federal Government, means
``any act of pursuit, torment, or annoyance which (i) has the potential
to injure a marine mammal or marine mammal stock in the wild'' (the
MMPA defines this as Level A harassment); or ``(ii) has the potential
to disturb a
[[Page 42983]]
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'' (the MMPA
defines this as Level B harassment) (16 U.S.C. 1362(18)).
The terms ``negligible impact'' and ``unmitigable adverse impact''
are defined in title 50 of the CFR at 50 CFR 18.27 (the Service's
regulations governing small takes of marine mammals incidental to
specified activities). ``Negligible impact'' is 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.
``Unmitigable adverse impact'' means an impact resulting from the
specified activity (1) that is likely to reduce the availability of the
species to a level insufficient for a harvest to meet subsistence needs
by (i) causing the marine mammals to abandon or avoid hunting areas,
(ii) directly displacing subsistence users, or (iii) placing physical
barriers between the marine mammals and the subsistence hunters; and
(2) that cannot be sufficiently mitigated by other measures to increase
the availability of marine mammals to allow subsistence needs to be
met.
The term ``small numbers''; is also defined in 50 CFR 18.27.
However, we do not rely on that definition here as it conflates ``small
numbers'' with ``negligible impacts.'' We recognize ``small numbers''
and ``negligible impacts'' as two separate and distinct requirements
for promulgating incidental take regulations (ITRs) under the MMPA (see
Natural Res. Def. Council, Inc. v. Evans, 232 F. Supp. 2d 1003, 1025
(N.D. Cal. 2003)). Instead, for our small numbers determination, we
estimate the likely number of takes of marine mammals and evaluate if
that take is small relative to the size of the species or stock.
The term ``least practicable adverse impact'' is not defined in the
MMPA or its enacting regulations. For this ITR, we ensure the least
practicable adverse impact by requiring mitigation measures that are
effective in reducing the impact of Industry activities but are not so
restrictive as to make Industry activities unduly burdensome or
impossible to undertake and complete.
In this ITR, the term ``Industry'' includes individuals, companies,
and organizations involved in exploration, development, production,
extraction, processing, transportation, research, monitoring, and
support services of the petroleum industry that were named in the
request for this regulation. Industry activities may result in the
incidental taking of Pacific walruses and polar bears.
The MMPA does not require Industry to obtain an incidental take
authorization; however, any taking that occurs without authorization is
a violation of the MMPA. Since 1993, the oil and gas industry operating
in the Beaufort Sea and the adjacent northern coast of Alaska has
requested and we have issued ITRs for the incidental take of Pacific
walruses and polar bears within a specified geographic region during
specified activities. For a detailed history of our current and past
Beaufort Sea ITRs, refer to the Federal Register at 81 FR 52276, August
5, 2016; 76 FR 47010, August 3, 2011; 71 FR 43926, August 2, 2006; and
68 FR 66744, November 28, 2003. The current regulations are codified at
50 CFR part 18, subpart J (Sec. Sec. 18.121 to 18.129).
Summary of Request
On June 15, 2020, the Service received a request from the Alaska
Oil and Gas Association (AOGA) on behalf of its members and other
participating companies to promulgate regulations for nonlethal
incidental take of small numbers of walruses and polar bears in the
Beaufort Sea and adjacent northern coast of Alaska for a period of 5
years (2021-2026) (hereafter referred to as ``the Request''). We
received an amendment to the Request on March 9, 2021, which was deemed
adequate and complete. The amended Request is available at
<a href="http://www.regulations.gov">www.regulations.gov</a> at Docket No. FWS-R7-ES-2021-0037.
The AOGA Request requested regulations that will be applicable to
the oil and gas exploration, development, and production, extraction,
processing, transportation, research, monitoring, and support
activities of multiple companies specified in the Request. This
includes AOGA member and other non-member companies that have applied
for these regulations and their subcontractors and subsidiaries that
plan to conduct oil and gas operations in the specified geographic
region. Members of AOGA represented in the Request are: Alyeska
Pipeline Service Company, BlueCrest Energy, Inc., Chevron Corporation,
ConocoPhillips Alaska, Inc. (CPAI), Eni U.S. Operating Co. Inc. (Eni
Petroleum), ExxonMobil Alaska Production Inc. (ExxonMobil), Furie
Operating Alaska, LLC, Glacier Oil and Gas Corporation (Glacier),
Hilcorp Alaska, LLC (Hilcorp), Marathon Petroleum, Petro Star Inc.,
Repsol, and Shell Exploration and Production Company (Shell).
Non-AOGA companies represented in the Request are: Alaska Gasline
Development Corporation (AGDC), Arctic Slope Regional Corporation
(ASRC) Energy Services, Oil Search (Alaska), LLC, and Qilak LNG, Inc.
This rule applies only to AOGA members, the non-members noted above,
their subsidiaries and subcontractors, and companies that have been or
will be acquired by any of the above. The activities and geographic
region specified in AOGA's Request and considered in this rule are
described below in the sections titled Description of Specified
Activities and Description of Specified Geographic Region.
Summary of Changes From the Proposed ITR
In preparing this final rule for the incidental take of polar bears
and Pacific walruses, we reviewed and considered comments and
information from the public on our proposed rule published in the
Federal Register on June 1, 2021 (86 FR 29364). We also reviewed and
considered comments and information from the public for our draft
environmental assessment (EA). Based on those considerations, we are
finalizing these regulations with the following changes from our
proposed rule:
<bullet> The Service revised language to state: ``Aircraft
operations within the ITR area should maintain an altitude of 1,500 ft
above ground level when safe and operationally possible.'' The
inclusion of ``safe and'' is essential to clarify that this altitude
recommendation applies only when it is safe to do so (in addition to
when it is ``operationally possible'').
<bullet> The Service added language to state that, where
information is insufficient to evaluate the potential effects of
activities on walruses, polar bears, and the subsistence use of these
species, holders of an LOA may be required to participate in joint
monitoring and/or research efforts to address these information needs
and ensure the least practicable impact to these resources.
<bullet> The Service added language specifying that a group be
defined for both walruses and polar bears as being two or more
individuals.
<bullet> The Service added language that clarifies that the correct
geographic region to which the ITRs will apply is 50 miles offshore,
not 200 miles offshore.
<bullet> The Service has revised Table 1 in the preamble to include
details regarding the sound measurement units and included peak SPL for
impulsive sound sources. The Service has also
[[Page 42984]]
revised references to past ITR Level B harassment and TTS thresholds.
<bullet> The Service has added clarifying language to reflect the
numbers of leases and land area in the NPR-A to reflect 307 leases
covering 2.6 million acres.
<bullet> The Service added a recent peer-reviewed article, ``Polar
bear behavioral response to vessel surveys in northeastern Chukchi Sea,
2008-2014'' by Lomac-MacNair et al. (2021), which assisted with the
analysis of behavioral responses of polar bears to vessel activity.
<bullet> The Service has clarified our discussion regarding the
conclusions we drew from the peer-reviewed article ``Aquatic behaviour
of polar bears (Ursus maritimus) in an increasingly ice-free Arctic.''
Lone, et al. 2018.
<bullet> The Service added language to clarify information
requirements from applicants for LOAs and have clarified our discussion
regarding monthly human occupancy.
<bullet> The Service added clarifying language to Sec.
18.126(b)(4) to limit disturbance around dens, including putative and
verified dens.
<bullet> The Service has removed the term ``other substantially
similar'' when describing what proposed activities are covered under
these ITRs.
Description of the Regulations
This rule does not authorize or ``permit'' the specified activities
to be conducted by the applicant. Rather, it authorizes the nonlethal,
incidental, unintentional take of small numbers of Pacific walruses and
polar bears that may result from Industry activities based on standards
set forth in the MMPA. The Bureau of Ocean Energy Management (BOEM),
the Bureau of Safety and Environmental Enforcement, the U.S. Army Corps
of Engineers, and the Bureau of Land Management (BLM) are responsible
for permitting activities associated with Industry activities in
Federal waters and on Federal lands. The State of Alaska is responsible
for permitting Industry activities on State lands and in State waters.
The regulations include:
<bullet> Permissible methods of nonlethal taking;
<bullet> Measures designed to ensure the least practicable adverse
impact on Pacific walruses and polar bears and their habitat, and on
the availability of these species or stocks for subsistence uses; and
<bullet> Requirements for monitoring and reporting.
Description of Letters of Authorization (LOAs)
An LOA is required to conduct activities pursuant to an ITR. Under
this ITR, entities intending to conduct the specific activities
described in these regulations may request an LOA for the authorized
nonlethal, incidental Level B harassment of walruses and polar bears.
Per AOGA's Request, such entities would be limited to the companies,
groups, individuals specified in AOGA's Request, their subsidiaries or
subcontractors, and their successors-in-interest. Requests for LOAs
must be consistent with the activity descriptions and mitigation and
monitoring requirements of the ITR and be received in writing at least
90 days before the activity is to begin. Requests must include (1) an
operational plan for the activity; (2) a digital geospatial file of the
project footprint, (3) estimates of monthly human occupancy (i.e., a
percentage that represents the amount of the month that at least one
human is occupying a given location) of project area; (4) a walrus and/
or polar bear interaction plan, (5) a site-specific marine mammal
monitoring and mitigation plan that specifies the procedures to monitor
and mitigate the effects of the activities on walruses and/or polar
bears, including frequency and dates of aerial infrared (AIR) surveys
if such surveys are required, and (6) Plans of Cooperation (described
below). Once this information has been received, we will evaluate each
request and issue the LOA if we find that the level of taking will be
consistent with the findings made for the total taking allowable under
the ITR and all other requirements of these regulations are met. We
must receive an after-action report on the monitoring and mitigation
activities within 90 days after the LOA expires. For more information
on requesting and receiving an LOA, refer to 50 CFR 18.27.
Description of Plans of Cooperation (POCs)
A POC is a documented plan describing measures to mitigate
potential conflicts between Industry activities and Alaska Native
subsistence hunting. The circumstances under which a POC must be
developed and submitted with a request for an LOA are described below.
To help ensure that Industry activities do not have an unmitigable
adverse impact on the availability of the species for subsistence
hunting opportunities, all applicants requesting an LOA under this ITR
must provide the Service documentation of communication and
coordination with Alaska Native communities potentially affected by the
Industry activity and, as appropriate, with representative subsistence
hunting and co-management organizations, such as the North Slope
Borough, the Alaska Nannut Co-Management Council (ANCC), and Eskimo
Walrus Commission (EWC), among others. If Alaska Native communities or
representative subsistence hunting organizations express concerns about
the potential impacts of project activities on subsistence activities,
and such concerns are not resolved during this initial communication
and coordination process, then a POC must be developed and submitted
with the applicant's request for an LOA. In developing the POC,
Industry representatives will further engage with Alaska Native
communities and/or representative subsistence hunting organizations to
provide information and respond to questions and concerns. The POC must
provide adequate measures to ensure that Industry activities will not
have an unmitigable adverse impact on the availability of walruses and
polar bears for Alaska Native subsistence uses.
Description of Specified Geographic Region
The specified geographic region covered by the requested ITR
(Beaufort Sea ITR region (Figure 1)) encompasses all Beaufort Sea
waters (including State waters and Outer Continental Shelf waters as
defined by BOEM) east of a north-south line extending from Point Barrow
(N71.39139, W156.475, BGN 1944) to the Canadian border, except for
marine waters located within the Arctic National Wildlife Refuge
(ANWR). The offshore boundary extends 80.5 km (50 mi) offshore. The
onshore boundary includes land on the North Slope of Alaska from Point
Barrow to the western boundary of ANWR. The onshore boundary is 40 km
(25 mi) inland. No lands or waters within the exterior boundaries of
ANWR are included in the Beaufort Sea ITR region. The geographical
extent of the Beaufort Sea ITR region (approximately 7.9 million
hectares (ha) (~19.8 million acres (ac))) is smaller than the region
covered in previous regulations (approximately 29.8 million ha (~73.6
million ac) were included in the ITR set forth via the final rule that
published at 81 FR 52276, August 5, 2016).
BILLING CODE 4333-15-P
[[Page 42985]]
[GRAPHIC] [TIFF OMITTED] TR05AU21.000
BILLING CODE 4333-15-C
Description of Specified Activities
This section first summarizes the type and scale of Industry
activities anticipated to occur in the Beaufort Sea ITR region from
2021 to 2026 and then provides more detailed specific information on
these activities. Year-round onshore and offshore Industry activities
are anticipated. During the 5 years that the ITR will be in place,
Industry activities are expected to be generally similar in type,
timing, and effect to activities evaluated under the prior ITRs. Due to
the large number of variables affecting Industry activities, prediction
of exact dates and locations of activities is not possible in a request
for a 5-year ITR. However, operators must provide specific dates and
locations of activities in their requests for LOAs. Requests for LOAs
for activities and impacts that exceed the scope of analysis and
determinations for this ITR will not be issued. Additional information
is available in the AOGA Request for an ITR at: <a href="http://www.regulations.gov">www.regulations.gov</a> in
Docket No. FWS-R7-ES-2021-0037.
Exploration Activities
AOGA's exploration activities specified in the Request are for the
purpose of exploring subsurface geology, water depths, and seafloor
conditions to help inform development and production projects that may
occur in those areas. Exploration survey activities include
geotechnical site investigations, reflection seismic exploration,
vibroseis, vertical seismic profiles, seafloor imagery collection, and
offshore bathymetry collection. Exploratory drilling and development
activities include onshore ice pad and road development, onshore gravel
pad and road development, offshore ice road development, and artificial
island development.
The location of new exploration activities within the specified
geographic region of this rule will be influenced by the location of
current leases as well as any new leases acquired via potential future
Federal and State of Alaska oil and gas lease sales.
BOEM Outer Continental Shelf Lease Sales
BOEM manages oil and gas leases in the Alaska Outer Continental
Shelf (OCS) region, which encompasses 242 million ha (600 million ac).
Of that acreage, approximately 26 million ha (~65 million ac) are
within the Beaufort Sea Planning Area. Ten lease sales have been held
in this area since 1979, resulting in 147 active leases, where 32
exploratory wells were drilled. Production has occurred on one joint
[[Page 42986]]
Federal/State unit, with Federal oil production accounting for more
than 28.7 million barrels (bbl) (1 bbl = 42 U.S. gallons or 159 liters)
of oil since 2001 (BOEM 2016). Details regarding availability of future
leases, locations, and acreages are not yet available, but exploration
of the OCS may continue during the 2021-2026 timeframe of the ITR.
Lease Sale 242, previously planned in the Beaufort Sea during 2017
(BOEM 2012), was cancelled in 2015. BOEM issued a notice of intent to
prepare an environmental impact statement (EIS) for the 2019 Beaufort
Sea lease sale in 2018 (83 FR 57749, November 16, 2018). The 2019-2024
Draft Proposed Program included three OCS lease sales, with one each in
2019, 2021, and 2023, but has not been approved. Information on the
Alaska OCS Leasing Program can be found at: <a href="https://www.boem.gov/about-boem/alaska-leasing-office">https://www.boem.gov/about-boem/alaska-leasing-office</a>.
National Petroleum Reserve--Alaska
The BLM manages the 9.2 million-ha (22.8 million-ac) Natural
Petroleum Reserve--Alaska (NPR-A), of which 1.3 million ha (3.2 million
ac) occur within the Beaufort Sea ITR region. Lease sales have occurred
regularly in the NPR-A; 15 oil and gas lease sales have been held in
the NPR-A since 1999. There are currently 307 leases covering more than
1,052,182 ha (2.6 million ac) in the NPR-A. Current operator/ownership
information is available on the BLM NPR-A website at <a href="https://www.blm.gov/programs/energy-and-minerals/oil-and-gas/leasing/regional-lease-sales/alaska">https://www.blm.gov/programs/energy-and-minerals/oil-and-gas/leasing/regional-lease-sales/alaska</a>.
State of Alaska Lease Sales
The State of Alaska Department of Natural Resources (ADNR), Oil and
Gas Division, holds annual lease sales of State lands available for oil
and gas development. Lease sales are organized by planning area. Under
areawide leasing, the State offers all available State acreage not
currently under lease within each area annually. AOGA's Request
includes activities in the State's North Slope and Beaufort Sea
planning areas. Lease sale data are available on the ADNR website at:
<a href="https://dog.dnr.alaska.gov/Services/BIFAndLeaseSale">https://dog.dnr.alaska.gov/Services/BIFAndLeaseSale</a>. Projected
activities may include exploration, facility maintenance and
construction, and operation activities.
The North Slope planning area has 1,225 tracts that lie between the
NPR-A and the ANWR. The southern boundary of the North Slope sale area
is the Umiat baseline. Several lease sales have been held to date in
this leasing area. As of May 2020, there are 1,505 active leases on the
North Slope, encompassing 1.13 ha (2.8 million ac), and 220 active
leases in the State waters of the Beaufort Sea, encompassing 244,760 ha
(604,816 ac). The Beaufort Sea Planning Area encompasses a gross area
of approximately 687,966 ha (1.7 million ac) divided into 572 tracts
ranging in size from 210 to 2,330 ha (520 to 5,760 ac).
Development Activities
Industry operations during oil and gas development may include
construction of roads, pipelines, waterlines, gravel pads, work camps
(personnel, dining, lodging, and maintenance facilities), water
production and wastewater treatment facilities, runways, and other
support infrastructure. Activities associated with the development
phase include transportation activities (automobile, airplane, and
helicopter); installation of electronic equipment; well drilling; drill
rig transport; personnel support; and demobilization, restoration, and
remediation work. Industry development activities are often planned or
coordinated by unit. A unit is composed of a group of leases covering
all or part of an accumulation of oil and/or gas. Alaska's North Slope
oil and gas field primary units include: Duck Island Unit (Endicott),
Kuparuk River Unit, Milne Point Unit, Nikaitchuq Unit, Northstar Unit,
Point Thomson Unit, Prudhoe Bay Unit, Badami Unit, Oooguruk Unit, Bear
Tooth Unit, Pikka Unit, and the Colville River and Greater Mooses Tooth
Units, which for the purposes of this ITR are combined into the Western
North Slope.
Production Activities
North Slope production facilities occur between the oilfields of
the Alpine Unit in the west to Badami and Point Thomson in the east.
Production activities include building operations, oil production, oil
transport, facilities, maintenance and upgrades, restoration, and
remediation. Production activities are long-term and year-round
activities whereas exploration and development activities are usually
temporary and seasonal. Alpine and Badami are not connected to the road
system and must be accessed by airstrips, barges, and seasonal ice
roads. Transportation on the North Slope is by automobile, airplanes,
helicopters, boats, vehicles with large, low-pressure tires called
Rolligons, tracked vehicles, and snowmobiles. Aircraft, both fixed wing
and helicopters, are used for movement of personnel, mail, rush-cargo,
and perishable items. Most equipment and materials are transported to
the North Slope by truck or barge. Much of the barge traffic during the
open-water season unloads from West Dock.
Oil pipelines extend from each developed oilfield to the Trans-
Alaska Pipeline System (TAPS). The 122-cm (48-in)-diameter TAPS
pipeline extends 1,287 km (800 mi) from the Prudhoe Bay oilfield to the
Valdez Marine Terminal. Alyeska Pipeline Service Company conducts
pipeline operations and maintenance. Access to the pipeline is
primarily from established roads, such as the Spine Road and the Dalton
Highway, or along the pipeline right-of-way.
Oil and Gas Support Activities
In addition to oil and gas production and development activities,
support activities are often performed on an occasional, seasonal, or
daily basis. Support activities streamline and provide direct
assistance to other activities and are necessary for Industry working
across the North Slope and related areas. Several support activities
are defined in AOGA's Request and include: Placement and maintenance of
gravel pads, roads, and pipelines; supply operations that use trucks or
buses, aircraft (fixed-wing or rotor-wing), hovercrafts, and barges/
tugs to transport people, personal incidentals (food, mail, cargo,
perishables, and personal items) between Units and facilities; pipeline
inspections, maintenance dredging and screeding operations; and
training for emergency response and oil spill response. Some of these
activities are seasonal and performed in the winter using tundra-
appropriate vehicles, such as road, pad, and pipeline development and
inspections. Field and camp-specific support activities include:
Construction of snow fences; corrosion and subsidence control and
management; field maintenance campaigns; drilling; well work/work-
overs; plugging and abandonment of existing wells; waste handling (oil
field wastes or camp wastes); camp operations (housekeeping, billeting,
dining, medical services); support infrastructure (warehousing and
supplies, shipping and receiving, road and pad maintenance, surveying,
inspection, mechanical shops, aircraft support and maintenance);
emergency response services and trainings; construction within existing
fields to support oil field infrastructure and crude oil extraction;
and transportation services by a variety of vehicles. Additional
details on each of these support activities can be found in AOGA's
Request.
[[Page 42987]]
Specific Ongoing and Planned Activities at Existing Oil and Gas
Facilities for 2021-2026
During the regulatory period, exploration and development
activities are anticipated to occur in the offshore and continue in the
current oil field units, including those projects identified by
Industry, below.
Badami Unit
The Badami oilfield resides between the Point Thomson Unit and the
Prudhoe Bay Unit, approximately 56 km (35 mi) east of Prudhoe Bay. No
permanent road connections exist from Badami to other Units, such as
Prudhoe Bay or the Dalton Highway. The Badami Unit consists of
approximately 34 ha (85 ac) of tundra, including approximately 9.7 km
(6 mi) of established industrial duty roads connecting all
infrastructure, 56 km (35 mi) of pipeline, one gravel mine site, and
two gravel pads with a total of 10 wells. The oilfield consists of the
following infrastructure and facilities: A central processing facility
(CPF) pad, a storage pad, the Badami airstrip pad, the Badami barge
landing, and a 40.2-km (25-mi) pipeline that connects to Endicott.
During the summer, equipment and supplies are transported to Badami
by contract aircraft from Merrill Field in Anchorage or by barge from
the West Dock in Prudhoe Bay. During winter drilling activities, a
tundra ice road is constructed near the Badami/Endicott Pipeline to
tie-in to the Badami CPF pad. This winter tundra ice road is the only
land connection to the Dalton Highway and the Badami Unit. Light
passenger trucks, dump trucks, vacuum trucks, tractor trailers, fuel
trucks, and heavy equipment (e.g., large drill rigs, well simulation
equipment) travel on this road during the winter season. This road also
opens as an ADNR-permitted trail during off-years where Tuckers (a
brand of tracked vehicle) or tracked Steigers (a brand of tractor) use
it with sleds and snow machines. Activities related to this opening
would be limited to necessary resupply and routine valve station
maintenance along the oil sales pipeline corridor.
Flights from Anchorage land at Badami Airfield (N70.13747,
W147.0304) for a total of 32 flight legs monthly. Additionally, Badami
transports personnel and equipment from Deadhorse to Badami Airfield.
Approximately 24 cargo flights land at Badami Airfield annually
depending on Unit activities and urgency. Badami also conducts aerial
pipeline inspections. These flights are typically flown by smaller,
charter aircrafts at a minimum altitude of 305 m (1,000 ft) at ground
level.
Tundra travel at Badami takes place during both the summer and
winter season. Rolligons and Tuckers (off-road vehicles) are used
during the summer for cargo and resupply activities but may also be
used to access any pipelines and valve pads that are not located
adjacent to the gravel roads. During periods of 24-hour sunlight, these
vehicles may operate at any hour. Similar off-road vehicles are used
during the winter season for maintenance and inspections. Temporary ice
roads and ice pads may be built for the movement of heavy equipment to
areas that are otherwise inaccessible for crucial maintenance and
drilling. Ice road construction typically occurs in December or
January; however, aside from the previously mentioned road connecting
Badami to the Dalton Highway, ice roads are not routinely built for
Badami. Roads are only built on an as-needed basis based on specific
projects. Other activities performed during the winter season include
pipeline inspections, culvert work, pigging, ground surveillance,
geotechnical investigations, vertical support member (VSM) leveling,
reconnaissance routes (along snow machine trails), and potentially
spill response exercises. Road vehicles used include pickup trucks,
vacuum trucks, loaders, box vans, excavators, and hot water trucks.
Standard off-road vehicles include, but are not limited to, Tuckers,
Rolligons, and snow machines.
On occasion, crew boats, landing craft, and barges may transport
personnel and equipment from West Dock to Badami from July through
September, pending the open-water window. Tugs and barges may also be
used depending on operational needs. These trips typically go from
Badami to other coastal Units, including Endicott and Point Thomson.
Badami performs emergency response and oil spill trainings during
both open-water and ice-covered seasons. Smaller vessels (i.e.,
zodiacs, aluminum work boats, air boats, and bay-class boats) typically
participate in these exercises. Future classes may utilize other
additional equipment or vessels as needed.
Currently, 10 wells have been drilled across the lifespan of the
Badami Unit. Repair and maintenance activities on pipelines, culverts,
ice roads, and pads are routine within the Badami Unit and occur year-
round. Badami's current operator has received a permit from the U.S.
Army Corps of Engineers to permit a new gravel pad (4.04 ha [10 ac])
located east of the Badami Barge Landing and a new gravel pit. This new
pad would allow the drilling of seven more deployment wells at Badami.
All new wells would be tied back to the CPF.
Duck Island Unit (Endicott)
Historically called the Endicott Oilfield, the Duck Island Unit is
located approximately 16 km (10 mi) northeast of Prudhoe Bay.
Currently, Hilcorp Alaska, LLC operates the oilfield. Endicott is the
first offshore oilfield to continuously produce oil in the Arctic area
of the United States and includes a variety of facilities,
infrastructure, and islands. Endicott consists of 210 ha (522 ac) of
land, 24 km (15 mi) of roads, 43 km (24 mi) of pipelines, two pads, and
no gravel mine sites. The operations center and the processing center
are situated on the 24-ha (58-ac) Main Production Island (MPI). To
date, 113 wells have been drilled in efforts to develop the field, of
which 73 still operate. Additionally, two satellite fields (Eider and
Sag Delta North) are drilled from the Endicott MPI. Regular activities
at Endicott consist of production and routine repair on the Endicott
Sales Oil Pipeline, culverts, bridges, and bench bags. A significant
repair on a bridge called the ``Big Skookum'' is expected to occur
during the duration of this ITR.
Endicott's facilities are connected by gravel roads and are
accessible through the Dalton Highway year-round via a variety of
vehicles (pickup trucks, vacuum trucks, loaders, box vans, excavators,
hot water trucks). Required equipment and supplies are brought in first
from Anchorage and Fairbanks, through Deadhorse, and then into
Endicott. Traffic is substantial, with heavy traffic on routes between
processing facilities and camps. Conversely, drill site access routes
experience much less traffic with standard visits occurring twice daily
(within a 24-hour period). Traffic at drill sites increases during
active drilling, maintenance, or other related projects and tends to
subside during normal operations. Hilcorp uses a variety of vehicles on
these roads, including light passenger trucks, heavy tractor-trailer
trucks, heavy equipment, and very large drill rigs. Ice roads are only
built on an as-needed basis for specific projects.
Air travel via helicopter from an established pad on Endicott to
Deadhorse Airport is necessary only if the access bridges are washed
out (typically mid to late May to the start of June). During such
instances, approximately 20-30 crew flights would occur along with
cargo flights about once a week. Hilcorp also performs
[[Page 42988]]
maternal polar bear den surveys via aircraft.
Hilcorp performs tundra travel work during the winter season
(December-May; based on the tundra opening dates). Activities involving
summer tundra travel are not routine, and pipeline inspections can be
performed using established roads. During the winter season, off-road
vehicles (e.g., Tuckers, snow machines, or tracked utility vehicles
called Argo centaurs) perform maintenance, pipeline inspections,
culvert work, pigging, ground surveillance, VSM leveling,
reconnaissance routes (snow machine trails), spill response exercises,
and geotechnical investigations across Endicott.
Tugs and barges are used to transport fuel and cargo between
Endicott, West Dock, Milne, and Northstar during the July to September
period (pending the open-water period). Trips have been as many as over
80 or as few as 3 annually depending on the needs in the Unit, and
since 2012, the number of trips between these fields has ranged from 6
to 30. However, a tug and barge have been historically used once a year
to transport workover rigs between West Dock, Endicott, and Northstar.
Endicott performs emergency response and oil spill trainings during
both the open-water and ice-covered seasons. Smaller vessels (i.e.,
zodiacs, Kiwi Noreens, bay-class boats) participate in these exercises;
however, future classes may utilize other additional equipment or
vessels (e.g., the ARKTOS amphibious emergency escape vehicle) as
needed. ARKTOS training will not be conducted during the summer.
Kuparuk River Unit
ConocoPhillips Alaska, Inc., operates facilities in the Kuparuk
River Unit. This Unit is composed of several additional satellite
oilfields (Tarn, Palm, Tabasco, West Sak, and Meltwater) containing 49
producing drill sites. Collectively, the Greater Kuparuk Area consists
of approximately 1,013 ha (2,504 ac) made up of 209 km (130 mi) of
gravel roads, 206 km (128 mi) of pipelines, 4 gravel mine sites, and
over 73 gravel pads. A maximum of 1,200 personnel can be accommodated
at the Kuparuk Operations Center and the Kuparuk Construction Camp. The
camps at the Kuparuk Industrial Center are used to accommodate overflow
personnel.
Kuparuk's facilities are all connected by gravel road and are
accessible from the Dalton Highway year-round. ConocoPhillips utilizes
a variety of vehicles on these roads, including light passenger trucks,
heavy tractor-trailer trucks, heavy equipment, and very large drill
rigs. Required equipment and supplies are flown in through Deadhorse
and then transported via vehicle into the Kuparuk River Unit. Traffic
has been noted to be substantial, with specific arterial routes between
processing facilities and camps experiencing the heaviest use.
Conversely, drill site access routes experience much less traffic with
standard visits to drill sites occurring at least twice daily (within a
24-hour period). Traffic at drill sites increases during drilling
activities, maintenance, or other related projects and tends to subside
during normal operations.
The Kuparuk River Unit uses its own private runway (Kuparuk
Airstrip; N70.330708, W149.597688). Crew and personnel are transported
to Kuparuk on an average of two flights per day. Flights arrive into
Kuparuk only on the weekdays (Monday through Friday). Year round,
approximately 34 flights per week transport crew and personnel between
Kuparuk and Alpine Airport. ConocoPhillips plans to replace the
passenger flights from Alpine to Kuparuk in 2021 with direct flights to
both Alpine and Kuparuk from Anchorage. These flights are expected to
occur five times weekly and will replace the weekly flights from Alpine
to Kuparuk. Cargo is also flown into Kuparuk on personnel flights. The
single exception would be for special and specific flights when the
Spine road is blocked. Occasionally, a helicopter will be used to
transport personnel and equipment within the Kuparuk River Unit. These
flights generally occur between mid-May and mid-September and account
for an estimated 50 landings annually in Kuparuk. The location and
duration of these flights are variable, and helicopters could land at
the Kuparuk Airstrip or remote locations on the tundra. However, only 4
of the estimated 50 landings are within 3.2 km (5 mi) of the coast.
ConocoPhillips flies surveys of remote sections of the Kuparuk
crude pipeline one to two times weekly during summer months as well as
during winter months when there is reduced visibility from snow cover.
During winter months, maternal den surveys are also performed using
aircraft with mounted AIR cameras. Off-road vehicles (such as Rolligons
and Tuckers) are used for maintenance and inspection of pipelines and
power poles that are not located adjacent to the gravel roads. These
vehicles operate near the road (152 m [500 ft]) and may operate for 24
hours a day during summer months. During winter months, temporary ice
roads and pads are built to move heavy equipment to areas that may be
inaccessible. Winter tundra travel distances average approximately
1,931 km (1,200 mi) with ice roads averaging approximately 17.7 km (11
mi) and may occur at any hour of the day. Dredging and screeding occur
annually to the extent necessary for safety, continuation of seawater
flow, and dock stability at the Kuparuk saltwater treatment plant
intake and at Oliktok dock. Dredging occurs within a 1.5-ha (3.7-ac)
area, and screeding occurs within a 1-ha (2.5-ac) area. Operations are
conducted during the open-water season (May to October annually).
Removed material from screeding and dredging is deposited in upland
areas above the high tide, such as along the Oliktok causeway and
saltwater treatment plant (STP) pad. ConocoPhillips removes
approximately 0.6 to 1.1 m (2 to 3.5 ft) of sediment per year. Dredging
activities typically last for 21 days, and screeding activities
typically last 12 days annually. Boats are also used to perform routine
maintenance as needed on the STP outfalls and inlets. ConocoPhillips
infrequently has marine vessel traffic at the Oliktok Dock.
ConocoPhillips performs emergency response and oil spill trainings
during both open-water and ice-covered seasons. Smaller vessels (i.e.,
zodiacs, aluminum work boats, air boats, and bay-class boats) typically
participate in these exercises. Future classes may utilize other
additional equipment or vessels as needed.
The Willow Development Project, which is described in full in
Planned Activities at New Oil and Gas Facilities for 2021-2026, would
lead to increased activity through the Kuparuk River Unit.
Prefabricated modules would be transported through the Unit. Module
transportation involves an increase in road, aircraft, and vessel
traffic resulting in the need for gravel road and gravel pad
modifications, ice road and ice pad construction, and sea floor
screeding. During the 2023 summer season, gravel hauling and placement
to modify existing roads and pads used in support of the Willow
Development would take place. An existing 12-acre gravel pad located
13.2 km (2 mi) south of the Oliktok Dock would require the addition of
33,411 cubic m (43,700 cubic yd) of gravel, increasing pad thickness to
support the weight of the modules during staging. However, this
addition of gravel would not impact the current footprint of the pad.
Additionally, ConocoPhillips plans to widen six road curves and add
four 0.2-ha (0.5-ac) pullouts between the Oliktok Dock and Drill Site
2P as well as increase the thickness of the 3.2-km (2-
[[Page 42989]]
mi) gravel road from the Oliktok Dock to the staging pad--requiring
approximately 30,811 cubic m (40,300 yd) of gravel and resulting in an
increase in footprint of the gravel road by <0.4 ha (<0.1 ac). Twelve
culverts are estimated to be extended within this part of the gravel
road to accommodate the additional thickness (approximately five
culverts per mile). This would yield a new gravel footprint with an
additional 2 ha (5.0 ac) and 90,752 cubic m (118,700 cubic yd). In
2025, a 6.1-ha (15-ac) ice pad, for camp placement, and an ice road for
module transportation, would be constructed in association with the
Willow Project. The planned location is near Drill Site 2P, over 32.2
km (20 mi) away from the coastline.
An increase in road traffic to Kuparuk is expected to begin in 2023
and continue into the summer of 2026. Activities would mostly consist
of the transportation of freight, equipment, and support crews between
Oliktok Point, the Kuparuk Airport, and the NPR-A. The number of weekly
flights will also increase with an average of 6 additional weekly
flights in 2023, 4 additional flights per week in 2024, 14 additional
flights per week in 2025, and 4 additional flights per week in 2026.
Eight barges would deliver the prefabricated modules and bulk material
to Oliktok Dock using existing and regularly used marine transportation
routes in the summer of 2024 and 2026.
Due to the current depths of water at the Oliktok Dock (2.4 m [8
ft]), lightering barges (barges that transfer cargo between vessels to
reduce a vessel's draft) would be used to support the delivery of large
modules to the Dock. The location of the lightering transfer would be
approximately 3.7 km (2.3 mi) north of Oliktok Dock in 3.05 m (10 ft)
of water. Screeding operations would occur during the summer open-water
season 2022-2024 and 2026 starting mid-July and take approximately one
week to complete. The activities would impact an area of 3.9 ha (9.6
ac) and an additional hectare (2.5 ac) in front of the Oliktok Dock to
facilitate the unloading of the lightering barges. Bathymetry
measurements would be taken after to confirm the appropriate conditions
of the screeded seafloor surface.
Milne Point Unit
The Milne Point Unit is located 56 km (35 mi) northwest of Prudhoe
Bay, producing from three main pools, including Kuparuk, Schrader
Bluff, and Sag River. The total development area of Milne Point is 182
ha (450 ac), including 80 ha (198 ac) of 14 gravel pads, 54 km (33 mi)
of gravel roads and mines, 161 km (100 mi) of pipelines, and over 330
wells.
Milne Point's facilities are connected by gravel roads and are
accessible by the Dalton Highway year-round via a variety of vehicles
(pickup trucks, vacuum trucks, loaders, box vans, excavators, hot water
trucks). Required equipment and supplies are brought in first from
Anchorage and Fairbanks, through Deadhorse, and then into the Milne
Point Unit. Arterial roads between processing facilities and camps
experience heavy traffic use. Conversely, drill site access routes
experience much less traffic, with standard visits to drill sites
occurring twice daily (within a 24-hour period). Traffic at drill sites
increases during drilling activities, maintenance, or other related
projects and tends to subside during normal operations. Industry uses a
variety of vehicles on these roads, including light passenger trucks,
heavy tractor-trailer trucks, heavy equipment, and very large drill
rigs.
Air travel via helicopter from an established pad (N70.453268,
W149.447530) to Deadhorse Airport is necessary only if the access
bridges are washed out (typically mid to late May to the start of
June). During such instances, approximately 20-30 crew flights would
occur, along with cargo flights, about once a week. Hilcorp also
performs maternal polar bear den surveys via aircraft.
Hilcorp uses off-road vehicles (Rolligons and Tuckers) for tundra
travel during summer months to access any pipelines and power poles not
found adjacent to the gravel roads. During the winter seasons,
temporary ice roads and ice pads are built as needed across the Unit to
move heavy equipment to areas otherwise inaccessible. Hilcorp also uses
their off-road vehicles (Tuckers, snow machines, and Argo centaurs)
during the winter to perform maintenance and inspections. Additionally,
road vehicles (pickup trucks, vacuum trucks, loaders, box vans,
excavators, and hot water trucks) are used to perform pipeline
inspections, culvert work, pigging, ground surveillance, VSM leveling,
reconnaissance routes (snow machine trails), potential spill response
exercises, and geotechnical investigations.
There are 14 pads and 2 gravel mine sites within the Milne Point
Unit. Twenty-eight new wells are expected to be drilled over the next 7
years. Repair activities are routine at Milne Point and occur on
pipelines, culverts, ice roads, and pads. Hilcorp also has plans to
continue development on Milne Point and will be running two to three
more drilling rigs over the next 5 years--requiring several pad
expansions to support them. Hilcorp plans to expand six pads,
including: S Pad (4.5 ha [11 ac]), I Pad (0.81 ha [2 ac]), L Pad (0.81
ha [2 ac]), Moose Pad (0.81 ha [2 ac]), B Pad (2.1 ha [5.3 ac]), and E
Pad (0.4 ha [1 ac]). Additionally, Hillcorp's proposed Raven Pad is
projected to be built in 2021 between the L and F Pads. This pad will
be 12.1 ha (30 ac) and contain various facilities, pipelines, tie-ins,
a new pipeline/VSM along existing routes connecting F Pad to CFP and 45
wells.
Hilcorp is also planning to drill at least 28 new wells with a
potential for more over the period of the ITR. New facilities will be
installed for polymer injections, flowlines for new wells, pipelines,
camps, tanks, and main facility improvements. This will require the
development of new gravel pits for mining. Some of the new facilities
planned to be built include: Upgrades to Moose pad; F Pad Polymer
facility installation and startup; 2020 shutdown for A-Train process
vessel inspections and upgrades; LM2500 turbine overhaul completion;
Raven Pad design and civil work; S Pad facility future expansion; S Pad
polymer engineering and procurement; diesel to slop oil tank
conversion; and I Pad redevelopment. Repair activities will be
routinely performed on pipelines, culverts, ice roads, and pads. Power
generation and infrastructure at L Pad and polymer injection facilities
are also planned on Moose Pad, F Pad, J Pad, and L Pad.
Hilcorp plans to expand the size of the Milne mine site up to 9 ha
(22.37 ac). Approximately 6.3 ha (15.15 ac) will be mined for gravel.
Overburden store will require about 1 ha (2.5 ac) and will be
surrounded by a 1.3-ha (3.4-ac) buffer. Around 0.5 ha (1.32 ac) will be
used to expand the Dalton Highway. The Ugnu Mine Site E, located
approximately 8 km (5 mi) southeast of Oliktok Point and 3.2 km (2 mi)
south of Simpson Lagoon, will also be expanded during the 2021-2026
ITR. Hilcorp's planned expansion for the new cell is approximately 259
m long by 274 m wide (850 ft long by 900 ft wide) or 7.1 ha (17.56 ac).
This would produce an estimated 434,267 cubic m (568,000 cubic yd) of
overburden including a 20 percent swell factor, and approximately
764,554 cubic m (1,000,000 cubic yd) of gravel. The footprint of the
Phase I Material Site is expected to be 6.5 ha (16 ac). Overburden
storage, a thermal barrier, and access road would require approximately
4.2 ha (10.3 ac). The final site layout will be dependent on gravel
needs.
[[Page 42990]]
Marine vessels (specifically crew boats) are used to transport
workers from West Dock to Milne Point if bridges are washed out.
Additionally, vessels (tugs/barges) are used to transport fuel and
cargo between Endicott, West Dock, Milne Point, and Northstar from July
to September. While the frequency of these trips is dependent on
operational needs in a given year, they are typically sparse. Hilcorp
performs several emergency response and oil spill trainings throughout
the year during both the open-water and ice-covered season. Smaller
vessels (i.e., zodiacs, Kiwi Noreens, bay-class boats) typically
participate in these exercises; however, future classes may utilize
other additional equipment or vessels (e.g., the ARKTOS amphibious
emergency escape vehicle) as needed. ARKTOS training will not be
conducted during the summer, though Hilcorp notes that some variation
in activities and equipment can be expected.
Nikaitchuq Unit
Eni U.S. Operating Co., Inc., is the 100 percent working interest
owner and operator of the Nikaitchuq Unit. The Nikaitchuq Unit includes
the following infrastructure: Oliktok Production Pad (OPP), Spy Island
Drill site (SID), Nikaitchuq Operations Center (NOC), a subsea pipeline
bundle, an onshore crude oil transmission pipeline (COTP), and an
onshore pad that ties into the Kuparuk Pipeline (known as KPP).
Currently, the SID includes 19 production wells, one exploration well
on a Federal offshore lease, 14 injection wells, one Class-1 disposal
well, and two shallow water wells. The OPP includes 12 production
wells, 8 injection wells, 3 source water wells, 1 Class-1 disposal
well, and 2 shallow water wells.
Road access in the Nikaichuq Unit for the OPP, NOC, and KPP are
through connected gravel roads from the Dalton Highway year-round and
maintained by Kuparuk. Equipment and cargo are brought in from
Anchorage and Fairbanks after a stopover in Deadhorse. Traffic levels
vary depending on ongoing activities but do not change significantly
with time of year.
Crew and cargo are primarily transported using commercial flights
to Deadhorse and then by vehicle. A helicopter may be used for
transportation of personnel, the delivery and movement of supplies and
equipment from Deadhorse when the Kuparuk Bridge is unavailable, or in
the event of a medical emergency; however, these flights are
infrequent. Eni utilizes off-road vehicles (Rolligons and other track
vehicles) for both the summer and winter seasons for tundra travel;
however, tundra travel is infrequent. Primarily, these activities would
occur when access to the COTP between OPP and KPP is being inspected or
under maintenance. Eni utilizes off-road vehicles during winter to
conduct maintenance and inspections on COTP and to transport personnel,
equipment, and supplies between the OPP and SID during periods where a
sea ice road between the two locations is being constructed. Until the
sea ice road is completed, vehicles travel by a single snow trail
(approximately 6.8 km [4.25 mi]).
Two to three ice roads are constructed within the Nikaichuq Unit
annually. These ice roads are typically around 6.8 km (4.25 mi) long
and 18.3 m (60 ft) wide. Traffic occurs at all hours, consisting of a
variety of light vehicles, such as pickup trucks and sport-utility
vehicles (SUVs), high-capacity personnel transport vehicles (busses),
ice road construction equipment (road graders, water tankers, snow
blowers, front end loaders, and dump trucks), vacuum trucks, and
tractor trailers. To build the sea ice road, Eni harvests ice chips
from Lake K-304 after constructing a 0.3-km (0.2-mi) long, 9.1-m (30-
ft) wide tundra ice road. In the past, a short tundra ice road was also
constructed and used to access a lake to obtain water for maintenance
of a sea ice road, and such an ice road may be used in the future.
Maintenance activities, such as gravel and gravel bag placement
along the subsea pipeline, may occur as needed. Routine screeding is
generally performed near barge landings at OPP and SID. Dredging is
also possible in this area, although not likely. Hovercrafts are used
to transport both cargo and personnel year round but generally occur
daily between Oliktok Point and SID during October through January and
May through July. Crew boats with passengers, tugs, and barges are used
to transport cargo from Oliktok Point to the SID daily during open-
water months (July through September) as needed. Eni also performs
emergency response and oil spill trainings during both open-water and
ice seasons.
Northstar Unit
The Northstar Unit is made up of a 15,360-ha (38,400-ac) reservoir,
and Hilcorp Alaska, Inc., currently operates it. Northstar is an
artificial island located approximately 6 km (4 mi) northwest of Point
McIntyer and 10 km (6 mi) from Prudhoe Bay. The water depth surrounding
the island is approximately 11.9 m (39 ft) deep. Thirty wells have been
drilled to develop Northstar, of which 23 are still operable. A buried
subsea pipeline (58 km [36 mi] long) connects the facilities from
Northstar to the Prudhoe Bay oilfield. Access to the island is through
helicopter, hovercraft, boat, Tucker, and vehicle (only during the
winter ice road season). Routine activities include maintenance and
bench/block repairs on culvert, road, and pipelines.
There are no established roads on Northstar Island. Loaders,
cranes, and a telescopic material handler are used to move cargo and
equipment. Hilcorp exclusively uses helicopters for all aircraft
operations around the Northstar Unit, with an estimated 800 landings
per year. Crew and cargo flights travel daily from May to January to
Northstar Island from Deadhorse Airport. Sling-loading equipment and
supplies may also occur from May through December. Pipeline inspections
via aircraft are performed once weekly--generally with no landings.
However, once per quarter, the helicopter lands to inspect the end of
the pipeline where it enters the water (N70.404220, W148.692130).
Only winter tundra travel occurs at Northstar. Hilcorp typically
builds several unimproved ice trails to Northstar, including a trail
along the pipeline corridor from the valve pad near the Dew Line site
to Northstar (9.5 km [5.93 mi]); a trail from West Dock to the pipeline
shore crossing, grounded ice along the coastline (7.8 km [4.82 mi]);
two unimproved ice road paths from the hovercraft tent at the dockhead;
one trail under the West Dock Causeway (WDC) bridge to well pad DH3
(1.4 km [0.86 mi]); and a trail around West Dock to intersect the main
ice road north of the STP (4.6 km [2.85 mi]). Hilcorp may also
construct any number of shorter trails into undisturbed areas to avoid
unstable/unsafe areas throughout the ice season. These detours may be
constructed after March 1st due to safety considerations and may
deviate approximately 23-46 m (75-150 ft) from the original road or
trail.
Hilcorp typically constructs an approximately 11.7-km (7.3-mi) long
ice road each year between Northstar and Prudhoe Bay (specifically West
Dock) to allow for the transportation of personnel, equipment,
materials, and supplies. This ice road generally allows standard
vehicles (SUVs, pickup trucks, buses, other trucks) to transport crew
and equipment to and from the island; however, Hilcorp may elect to
construct an ice trail that supports only light-weight vehicles
depending on operational needs and weather conditions.
[[Page 42991]]
During December or January before ice roads are built, Tucker
tracked vehicles transport cargo and crew daily. During ice road
construction, work will occur for 24 hours a day, 7 days a week, and is
stopped only when unsafe conditions are presented (e.g., high winds,
extremely low temperatures). Ice road construction typically begins
around January 1st when the ice is considered thick enough (minimum of
61 cm [24 in]) and is typically completed within 45 days of the start
date.
Once the ice road is built, tractor-trailer trucks transport
freight, chemicals for resupplies (occurs every 2 weeks using 10
truckloads), diesel, and other equipment. Additional personnel and
smaller freight travel multiple times a day in light passenger traffic
buses and pickup trucks. A grader and snow blower maintain the ice road
daily, and in the event of cracks in the ice road, a loader may be
used. Tucker tracked vehicles and hovercraft are used beginning mid-May
as ice becomes unstable, then, as weather warms, boats and helicopters
are used. Hilcorp uses hovercraft daily between West Dock and Northstar
Island to transport crew and cargo (October through January and May
through July) when broken-ice conditions are present. Crew boats have
also been used to carry crew and cargo daily from West Dock to
Northstar Island during open-water months (July to September) when
hovercraft are not in use. Tugs and barges transport fuel and cargo
from West Dock and Endicott to Northstar Island during the open-water
season (July through September) and may be used once a year to
transport workover rigs. There are typically 6-30 trips per year.
Northstar performs emergency response and oil spill trainings
during both open-water and ice-covered seasons. Smaller vessels (i.e.,
zodiacs, aluminum work boats, air boats, and bay-class boats) typically
participate in these exercises. Future classes may utilize other
additional equipment or vessels (e.g., the ARKTOS amphibious emergency
escape vehicle) as needed. However, the ARKTOS training will not be
conducted during the summer.
Oooguruk Unit
The Oooguruk Unit was originally developed in 2008 and is operated
by Eni, consisting of several developments and facilities including the
Oooguruk Drill site (ODS), a 13-km (8.1-mi) long pipeline bundle, and
the Oooguruk Tie-in Pad (OTP). The OTP is an onshore production
facility that consists of tanks, flowlines, support infrastructure, and
power generation facilities. The pipeline bundle consists of two oil
pipelines, a 30.5-cm (12-in) inner diameter production flowline, and a
5.1-cm (2-in) inner diameter diesel/base oil flowline. The bundle sits
about 61 m (200 ft) from the shoreline when onshore and runs about 3.8
km (2.4 mi) on vertical supports to the OTP. A 30.5-cm (12-in) product
sales line enters a metering skid on the southeast side of the OTP.
This metering skid represents the point where the custody of the oil is
transferred to ConocoPhillips Alaska, Inc. Diesel fuels and base oil
are stored at the OTP to resupply the ODS as needed.
The ODS is a manmade island located approximately 9.2 km (5.7 mi)
offshore and measuring approximately 5.7 ha (14 ac) and is found
approximately 12.9 km (8 mi) northwest of the OTP. The site includes
living quarters with 150 beds, a helicopter landing site, various
production and injection wells, and a grind and inject facility. A
Nabors rig is also located on the pad and the rig is currently not in
use. The ocean surrounding the island is about 3.05 m (10 ft) in depth
and considered relatively shallow.
Oooguruk relies on interconnected gravel roads maintained by
Kuparuk to gain access to the Dalton Highway throughout the year.
Equipment and supplies travel from Anchorage and Fairbanks to the OTP
through Deadhorse. The ODS is connected to the road system only when an
ice road is developed and available from February to May.
Eni uses helicopters from May to January for cargo transport, which
is limited to flights between the OTP and the ODS. Work personnel
depart from the Nikaitchuq Unit's NOC pad; Eni estimates about 700
flights occur during the helicopter season for both crew and field
personnel.
Eni occasionally utilizes off-road vehicles (e.g., Rolligons and
track vehicles) during the summer tundra months with activities limited
to cleanup on ice roads or required maintenance of the pipeline bundle.
During winter months, track vehicles transport personnel, equipment,
and supplies between the OTP and ODS during the ice road construction
period. The ice road is approximately 9.8-m (32-ft) wide, and traffic
and activity are constant--most notably from light vehicles (pickup
trucks, SUVs), high-capacity personnel transport (buses), ice road
construction equipment (road graders, water tankers, snow blowers,
front-end loaders, dump trucks), and well maintenance equipment (coil
tubing units, wire-line units, hot oil trucks). Eni estimates over
3,500 roundtrips occur annually.
Eni will add 2,294 cubic m (3,000 cubic yd) of gravel to facilitate
a hovercraft landing zone on island east and will also conduct
additional gravel maintenance at the ``shoreline crossing'' of the
pipeline or the area where the pipeline transitions from the above-
ground section to the subsea pipeline. Maintenance in these areas is
necessary to replace gravel lost to erosion from ocean wave action.
Additionally, Eni performs gravel placement on the subsea pipeline to
offset strudel scour--pending the results of annual surveys. Island
``armor'' (i.e., gravel bags) requires maintenance throughout the year
as well.
Eni utilizes some in-water vessel traffic to transport crew and
cargo from Oliktok Point to the ODS during the open-water season
(typically July to September). These trips occur daily (or less if
hovercraft are used). Additionally, Eni uses tugs and barges to
transport cargo from Oliktok Point to the ODS from July to September.
These vessels make varying amounts of trips, from a few trips annually
up to 50 trips depending on operational needs at the time.
Like the trainings performed at the Nikaitchuq Unit, Eni would also
conduct emergency and oil spill response trainings throughout the ITR
period at various times. Trainings will be conducted during both open-
water and ice-covered seasons with training exercises occurring on both
the land and the water depending on current ice conditions. Further
information on these trainings can be found on the submitted AOGA
Request for 2021-2026.
Point Thomson Unit
The Point Thomson Unit (PTU) is located approximately 32 km (20 mi)
east of the Badami field and 96 km (60 mi) east of Deadhorse and is
operated by ExxonMobil. The Unit includes the Point Thomson initial
production system (IPS), Sourdough Wells, and legacy exploration sites
(i.e., PTU 1-4, Alaska C-1, West Staines State 2 and 18-9-23). The
total Point Thomson IPS area is approximately 91 ha (225 ac), including
12.4 km (7.7 mi) of gravel roads, 35 km (22 mi) of pipelines, one
gravel mine site, and three gravel pads (Central, West, and C-1).
The Point Thomson IPS facilities are interconnected by gravel roads
but are not connected to other oilfields or developments. Equipment and
supplies are brought in via air, barge, ice road, or tundra travel
primarily from Deadhorse. Traffic on gravel roads within the PTU
[[Page 42992]]
occurs daily with roads from Central Pad to the airstrip experiencing
the heaviest use. This consistent heavy use is not influenced by time
of year. Vehicle types include light passenger trucks/vans, heavy
tractor-trailer trucks, and heavy equipment usage on pads, particularly
for snow removal and dust control.
Personnel and most cargo are transported to Point Thomson using
aircraft departing from Deadhorse. During normal operations, an average
of two to four passenger flights per week land at the Point Thomson
Airport. Typically, there are 12 cargo flights per year (or one per
month) that may land at Point Thomson, but frequency is reduced January
to April when tundra is open. Aerial pipeline inspection surveys are
conducted weekly, and environmental surveys and operations typically
occur for one to two weeks each summer. The environmental surveys are
generally performed at remediation sites such as West Staines State 2
and 18-9-23, areas of pipeline maintenance, and tundra travel routes.
Off-road vehicles (e.g., Rolligons and track vehicles) are only
used during the summer tundra months for emergency purposes such as
accessing the pipeline. During winter months, off-road vehicles provide
access to spill response conexes, deliver cargo supplies from
Deadhorse, and maintain and inspect the PTU. Tundra travel includes a
route south of the pipeline from Deadhorse to Point Thomson, a route
along the pipeline right-of-way (ROW), spur roads as needed between the
southern route and the pipeline ROW, and a route to spill conexes
totaling approximately 146.5 km (91 mi). Travel along these routes can
occur at any time of day.
Temporary ice roads and pads near the Point Thomson Facility are
built to move heavy equipment to areas otherwise inaccessible for
maintenance and construction activities. Ice road and ice pad
construction typically begins in December or January. An ice road to
Point Thomson is typically needed in the event that a drilling rig
needs to be mobilized and extends east from the Endicott Road, connects
to the Badami facilities, and continues east along the coast to Point
Thomson.
Barging usually occurs from mid-July through September. In the
event additional barging operations are needed, dredging and screeding
activities may occur to allow barges to dock at Point Thomson. If
dredging and screeding activities are necessary, the work would take
place during the open-water season and would last less than a week.
ExxonMobil also performs emergency response and oil spill trainings
during the summer season. On occasion, spill response boats are used to
transport operations and maintenance personnel to Badami for pipeline
maintenance.
Expansion activities are expected to occur over 4 years and would
consist of new facilities and new wells on the Central Pad to increase
gas and condensate production. The Central Pad would require a minor
expansion of only 2.8 ha (7 ac) to the southwest. Minor size increases
on infield pipelines will also occur, but the facility footprint would
not otherwise increase. To support this project, an annual ice road
would be constructed, and summer barging activities would occur to
transport a drilling rig, additional construction camps, field
personnel, fuel, equipment, and other supplies or materials. Gravel
would be sourced from an existing stockpile, supplemented by additional
gravel volume that would be sourced offsite as necessary. Drilling of
wells is expected to occur during the later years of construction, and
new modular production facilities would be fabricated offsite and then
delivered via sealift.
A small number of barge trips (<10 annually) are expected to
deliver equipment, fuel, and supplies during the open-water season
(mid-July through September) from Deadhorse and may occur at any time
of day. Additional development activities are planned within PTU and
are described in the section Alaska Liquefied Natural Gas Project
(Alaska LNG).
Prudhoe Bay Unit
The Prudhoe Bay Unit (PBU) is the largest producing oilfield in
North America and is operated by Hilcorp. The PBU includes satellite
oilfields Aurora, Borealis, Midnight Sun, Polaris, and Orion. The total
development area is approximately 1,778 ha (4,392 ac), including 450 km
(280 mi) of gravel roads, 2,543 km (1,580 mi) of pipelines, 4 gravel
mines, and over 113 gravel pads. Camp facilities such as the Prudhoe
Bay Operations Center, Main Construction Camp, Base Operations Center,
and Tarmac camp are also within the PBU.
PBU facilities are connected by gravel roads and can be accessed
from the Dalton Highway year-round. Equipment and supplies are flown or
transported over land from Anchorage and Fairbanks to Deadhorse before
they are taken to the PBU over land. Traffic is constant across the PBU
with arterial routes between processing facilities and camps
experiencing the heaviest use while drill site access roads are
traveled far less except during active drilling, maintenance, or other
projects. Traffic is not influenced by the time of year. Vehicle types
include light passenger trucks, heavy tractor-trailer trucks, heavy
equipment, and very large drill rigs.
Personnel and cargo are transported to the PBU on regularly
scheduled, commercial passenger flights through Deadhorse and then
transported to camp assignments via bus. Pipeline surveys are flown
every 7 days departing from CPAI's Alpine airstrip beginning the flight
route at Pump Station 1 and covering a variety of routes in and around
the Gathering Center 2, Flow Station 2, Central Compressor Pad, West
Gas Injection, and East Sag facilities. Pipelines are also surveyed
once per day from the road system using a truck-mounted forward-looking
infrared camera system. Various environmental studies are also
conducted using aircraft. Surveys include polar bear den detection and
tundra rehabilitation and revegetation studies. Tundra environmental
studies occur annually each summer in July and August with field
personnel being transported to sites over an average of 4 days. Flights
take off and return to Deadhorse airport, and field landings include
seven tundra sites an average of 25.7 km (16 mi) from Deadhorse
airport. Only four of the seven tundra landing sites are within 8 km (5
mi) of the Beaufort coast. Unmanned aerial systems (UAS) are used for
subsidence, flare, stack, and facility inspections from June to
September as well as annual flood surveillance in the spring. UAS
depart and arrive at the same location and only fly over roads,
pipeline ROWs, and/or within 1.6 km (1 mi) or line of sight of the pad.
Off-road vehicles (such as Rolligons and Tuckers) are used for
maintenance and inspection activities during the summer to access
pipelines and/or power poles that are not located adjacent to the
gravel roads. These vehicles typically operate near the road (152 m
[500 ft]) and may operate for 24 hours a day during summer months.
During winter months, temporary ice roads and pads are built to move
heavy equipment to areas that may be inaccessible. Winter tundra travel
distances and cumulative ice road lengths average about 120.7 and 12.1
km (75 and 7.5 mi), respectively, and may occur at any hour of the day.
An additional 0.8 ha (2 ac) of ice pads are constructed each winter.
West Dock is the primary marine gateway to the greater Prudhoe Bay
area with users including Industry vessels, cargo ships, oil spill
responders, subsistence users, and to a lesser degree,
[[Page 42993]]
public and commercial vessels. Routine annual maintenance dredging of
the seafloor around the WDC occurs to maintain navigational access to
DH2 and DH3 and to insure continued intake of seawater to the existing
STP. Approximately 15,291 cubic m (20,000 cubic yd) of material is
anticipated to be dredged over 56.6 ha (140 ac); however, up to 172,024
cubic m (225,000 cubic yd) of material is authorized to be removed in a
single year. All dredged material is placed as fill on the WDC for
beach replenishment and erosion protection. Some sediments are moved
but remain on the seafloor as part of the screeding process. Much of
the dredging work takes place during the open-water season between May
and October and will be completed in less than 30 working days. Annual
installation and floats, moorings, and buoys are installed at the
beginning of the open-water season and are removed at the end of the
open-water season. Up to three buoys may be installed to each side of
the breach (up to six buoys total).
During the 2021-2022 winter tundra travel period, an additional 8-
km (5-mi) ice road, 0.8-ha (2-ac) ice pad, up to 8-km (5-mi) pipeline,
and pad space are expected to be constructed to support I-Pad expansion
totaling 12.1 ha (30 ac) for the ice road and ice pad and 8.5 ha (21
ac) for the pad space, pipeline, and VSM footprints. Other pad
expansions include approximately 0.8 ha (2 ac) per year 2021-2026 at
DS3-DS0 and P-Pad.
Additionally, the construction of up to a 56.7-ha (140-ac) mine
site is expected. Construction will occur on a need-based, phased
approach over 40 years with no more than 24.3 ha (60 ac) of gravel
developed by 2026. A 4.3-km (2.7-mi) long and 24.4-m (80-ft) wide
gravel access road will also be built for a total impacted area of 10.5
ha (26 ac) over 1 year.
Trans-Alaska Pipeline System (TAPS)
TAPS is a 122-cm (48-in) diameter crude oil transportation pipeline
system that extends 1,287 km (800 mi) from Pump Station 1 in Prudhoe
Bay Oilfield to the Valdez Marine Terminal. The lands occupied by TAPS
are State-owned, and the ROWs are leased through April 2034. Alyeska
Pipeline Service Company operates the pipeline ROW. Approximately 37 km
(23 mi) of pipeline are located within 40 km (25 mi) of the Beaufort
Sea coastline. A 238-km (148-mi) natural gas line that extends from
Pump Station 1 provides support for pipeline operations and facilities.
The TAPS mainline pipe ROW includes a gravel work pad and drive lane
that crosses the Dalton Highway approximately 29 km (18 mi) south of
Pump Station 1.
Travel primarily occurs along established rounds, four pipeline
access roads, or along the pipeline ROW work pad. Ground-based
surveillance on the TAPS ROW occurs once per week throughout the year.
Equipment and supplies are transported via commercial carriers on the
Dalton Highway. In the summer, travel is primarily restricted to the
gravel work pad and access roads. There are occasional crossings of
unvegetated gravel bars to repair remote flood control structures on
the Sagavanirktok River. Transport of small-volume gravel material from
the active river floodplain to the TAPS work pad may occur. Vehicles
used during the summer include typical highway vehicles, maintenance
equipment, and off-road trucks for gravel material transport. In the
winter, travel occurs in similar areas compared to summer in addition
to maintenance activities, such as subsurface pipeline excavations.
Short (<0.4 km, <0.25 mi) temporary ice roads and ice pads are built to
move heavy equipment when necessary. Vehicles used during the winter
include off-road tracked vehicles so that snow plowing on the ROW is
not required. The amount of traffic is generally not influenced by the
time of year.
The Deadhorse Airport is the primary hub used for personnel
transport and airfreight to TAPS facilities in the northern pipeline
area. Commercial and charter flights are used for personnel transport,
and crew change-outs generally occur every 2 weeks. Other aviation
activities include pipeline surveillance, oil spill exercise/training/
response, and seasonal hydrology observations. Aerial surveillance of
the pipeline occurs once each week during daylight hours throughout the
year. Approximately 50 hours per year are flown within 40 km (25 mi) of
the Beaufort Sea coastline.
No TAPS-related in-water activities occur in the Beaufort Sea.
Instead, these activities will be limited to the Sagavanirktok River
and its tributaries. In-water construction and dredging may take place
occasionally, and they are generally associated with flood control
structures and repairs to culverts, low water crossings, and eroded
work pads. Gravel mining may also occur on dry unvegetated bars of the
active floodplain or in established gravel pits. On river bars, up to a
0.9-m (3-ft) deep layer of alluvial gravel is removed when the river is
low, and this layer is allowed to naturally replenish. Additional
construction of flood structures may be needed to address changes in
the hydrology of the Sagavanirktok River and its tributaries during the
2021-2026 period.
Western North Slope--Colville River and Greater Mooses Tooth Units
The Western North Slope (WNS) consists of the CPAI's Alpine and
Alpine satellite operations in the Colville River Unit (CRU) and the
Greater Mooses Tooth Unit (GMTU). The Alpine reservoir covers 50,264 ha
(124,204 ac), but the total developed area is approximately 153 ha (378
ac), which contains 45 km (28 mi) of gravel roads, 51.5 km (32 mi) of
pipelines, and 14 gravel pads. The CRU has a combined production pad/
drill site and four additional drill sites. The GMTU contains one
producing drill site and a second drill site undergoing construction.
Roads and pads are generally constructed during winter.
There are no permanent roads connecting WNS to industrial hubs or
other oilfields. Gravel roads connect four of the five CRU drill sites.
An ice road is constructed each winter to connect to the fifth CRU
drill site. Gravel roads also connect the GMTU drill sites to the CRU,
and gravel roads connect the two GMTU drill sites to each other. Each
drill site with gravel road access is visited at least twice during a
24-hour period, depending on the weather. Drill site traffic levels
increase during active drilling, maintenance, or other projects.
Vehicles that use the gravel roads include light passenger trucks,
heavy tractor-trailer trucks, heavy equipment, and very large drill
rigs. The amount of traffic is generally not influenced by the time of
year, but there may be increased amounts of traffic during the
exploration season.
In the winter, off-road vehicles are used to access equipment for
maintenance and inspections. Temporary ice roads and ice pads are built
to move heavy equipment for maintenance and construction activities. An
ice road is constructed to connect WNS to the Kuparuk oilfield (KRU) to
move supplies for the rest of the year. More than 1,500 truckloads of
modules, pipeline, and equipment are moved to WNS over this ice road,
which is approximately 105 km (65 mi) in length. As mentioned
previously, an ice road is constructed each winter to connect one of
the CRU drill sites to the other CRU facilities in order to facilitate
maintenance, drilling, and operations at this drill site. WNS ice roads
typically operate from mid-January until late-April.
The Alpine Airstrip is a private runway that is used to transport
personnel and cargo. An average of 60
[[Page 42994]]
to 80 personnel flights to/from the Alpine Airstrip occur each week.
Within the CRU, the Alpine Airport transports personnel and supplies to
and from the CRU drill site that is only connected by an ice road
during the winter. There are approximately 700 cargo flights into
Alpine each year. Cargo flight activity varies throughout the year with
October through December being the busiest months. Aerial visual
surveillance of the Alpine crude pipeline is conducted weekly for
sections of the pipeline that are not accessible either by road or
during winter months. These aerial surveillance inspections generally
occur one to two times each week, and they average between two and four
total flight hours each week. CPAI also uses aircraft to conduct
environmental studies, including polar den detection surveys in the
winter and caribou and bird surveys in the summer. These environmental
surveys cover approximately 1,287 linear km (800 linear mi) over the
CRU each year. In the summer from mid-May to mid-September, CPAI uses
helicopters to transport personnel and equipment within the CRU
(approximately 2,000 flights) and GMTU (approximately 650 flights).
There are no offshore or coastal facilities in the CRU. However,
there are multiple bridges in the CRU and GMTU that required pilings
which were driven into stream/riverbeds during construction. In-water
activities may occur during emergency and oil spill response training
exercises. During the ice-covered periods, training exercises may
involve using equipment to detect, contain, and recover oil on and
under ice. During the open-water season, air boats, shallow-draft jet
boats and possibly other vessels may be used in the Nigliq Channel, the
Colville River Main Channel, and other channels and tributaries
connected to the Colville River. Vessels may occasionally enter the
nearshore Beaufort Sea to transit between channels and/or tributaries
of the Colville River Delta.
In the 2021-2026 period, two 4-ha (10-ac) multiseason ice pads
would be located in the WNS in order to support the Willow Development
construction in the NPR-A. Possible expansion activities for this
period may include small pad expansions or new pads (<6.1 ha (15 ac))
to accommodate additional drilling and development of small pads and
gravel roads to accommodate additional facilities and operational
needs. Two gravel mine sources in the Ti[eng]miaqsiu[gdot]vik area have
been permitted to supply gravel for the Willow Development. The new
gravel source would be accessed seasonally by an ice road. Increases in
the amount of traffic within WNS are expected from 2023 to 2026. The
increase in traffic is due to the transport of freight, equipment, and
support crew between the Willow Development, the Oliktok Dock, and the
Kuparuk Airport. The planned Willow Development is projected to add
several flights to/from the Alpine Airstrip from 2021 to 2026. It is
estimated that the number of annual flights may increase by a range of
49 to 122 flights. There are plans to replace passenger flights
connecting Alpine and Kuparuk oilfields in 2021 with direct flights to
these oilfields. This change would reduce the number of connector
flights between these oilfields from 18 flights to 5 flights each week.
Planned Activities at New Oil and Gas Facilities for 2021-2026
AOGA's Request includes several new oil and gas facilities being
planned for leases obtained by Industry (see the section about Lease
Sales) in which development and exploration activities would occur. The
information discussed below was provided by AOGA and is the best
available information at the time AOGA's Request was finalized.
Bear Tooth Unit (Willow)
Located 45.1 km (28 mi) from Alpine, the Willow Development is
currently owned and operated by ConocoPhillips Alaska, Inc. Willow is
found in the Bear Tooth Unit (BTU) located within the northeastern area
of the NPR-A. Discovered in 2016 after the drilling of the Ti[eng]miaq
2 and 6 wells, Willow is estimated to contain 400-750 million barrels
of oil and has the potential to produce over 100,000 barrels of oil per
day. The Willow Project would require the development of several
different types of infrastructure, including gravel roads, airstrips,
ice roads, and ice pads, that would benefit seismic surveys, drilling,
operations, production, pile-driving, dredging, and construction.
ConocoPhillips plans to develop the hydrocarbon resources within
the BTU during the 2021-2026 timeline under this ITR. The proposed
development at Willow would consist of five drill sites along with
associated infrastructure, including flowlines, a CPF, a personnel
camp, an airstrip, a sales oil pipeline, and various roads across the
area. Additionally, Willow would require the development of a new
gravel mine site and would use sea lifts for large modules at Oliktok
Dock requiring transportation over gravel and ice roads in the winter.
Access to the Willow Development project area to Alpine, Kuparuk,
or Deadhorse would be available by ground transportation along ice
roads. Additionally, access to the Alpine Unit would occur by gravel
road. The Development Plan requires 61.5 km (38.2 mi) of gravel road
and seven bridges to connect the five drill sites to the Greater Mooses
Tooth 2 (GMT2). The Willow Development would also require approximately
59.7 km (37.1 mi) or 104 ha (257.2 ac) of gravel roads to the Willow
Central Processing Facility (WCF), the WCF to the Greater Mooses Tooth
2 (GMT2), to water sources, and to airstrip access roads. The gravel
needed for any gravel-based development would be mined from a newly
developed gravel mine site and then placed for the appropriate
infrastructure during winter for the first 3 to 4 years of the
construction.
Gravel mining and placement would occur almost exclusively in the
winter season. Prepacked snow and ice road construction will be
developed to access the gravel mine site, the gravel road, and pad
locations in December and January yearly from 2021 to 2024, and again
in 2026. Ice roads would be available for use by February 1 annually.
The Willow plan would require gravel for several facilities, including
Bear Tooth 1 (BT1), Bear Tooth 2 (BT2), Bear Tooth 3 (BT3), Bear Tooth
4 (BT4), roads, WCF, Willow Operations Center (WOC), and the airstrip.
Additionally, an all-season gravel road would be present from the GMT2
development and extend southwest towards the Willow Development area.
This access road would end at BT3, located west from the WCF, WOC, and
the airstrip. More gravel roads are planned to extend to the north,
connecting BT1, BT2, and BT4. An infield road at BT3 would provide a
water-source access road that would extend to the east to a freshwater
reservoir access pad and water intake system developed by
ConocoPhillips. Further east from the planned airstrip, an infield road
is planned to extend north to BT1, continue north to BT2, and end at
BT4. This road would intersect Judy (Iqalliqpik) Creek and Fish
(Uvlutuuq) Creek at several points. Culvert locations would be
identified and installed during the first construction season prior to
breakup. Gravel pads would be developed before on-pad facilities are
constructed. Gravel conditions and re-compaction would occur later in
the year.
The Willow area is expected to have year-round aircraft operations
and access from the Alpine Unit, Kuparuk Unit, Deadhorse, Anchorage,
Fairbanks, and several other locations. Aircraft would primarily be
used for support activities and transporting workers,
[[Page 42995]]
materials, equipment, and waste from the Willow Development to
Fairbanks, Anchorage, Kuparuk, and Deadhorse. To support these
operations, a 1,890-m (6,200-ft)-long gravel airstrip would be
developed and is expected to be located near the WOC. Aircraft flight
paths would be directed to the north of Nuiqsut. The construction for
the airstrip is expected to begin during the 2021 winter season and
completed by the summer of 2022. Before its completion, ConocoPhillips
would utilize the airstrip at the Colville Delta 1 at the Alpine CPF.
After completion of the airstrip, helicopters would be used to support
various projects within the Willow Development starting in 2023. An
estimated 82 helicopter flights would occur annually during 2023-2026
between April and August. After the development of planned gravel roads
and during activities such as drilling and related operations,
helicopters would be limited to support environmental monitoring and
spill response support. ConocoPhillips estimates that 50 helicopter
trips to and from Alpine would occur in 2021, and 25 helicopter trips
would occur from Alpine in 2022.
ConocoPhillips plans to develop and utilize ice roads to support
gravel infrastructure and pipeline construction to access lakes and
gravel sources and use separate ice roads for construction and general
traffic due to safety considerations regarding traffic frequency and
equipment size. The ice road used to travel to the Willow Development
is estimated to be shorter in length than previously built ice roads at
Kuparuk and Alpine, and ConocoPhillips expects the ice road use season
at Willow to be approximately 90 days, from January 25 to April 25. In
the winter ice road season (February through April), material resupply
and waste would be transported to Kuparuk and to the rest of the North
Slope gravel road system via the annual Alpine Resupply Ice Road.
Additionally, during drilling and operations, there would be seasonal
ground access from Willow to Deadhorse and Kuparuk from the annually
constructed Alpine Resupply Ice Road and then to the Alpine and GMT
gravel roads.
Seasonal ice roads would be developed and used during construction
at Willow's gravel mine, bridge crossings, horizontal directional
drilling crossing, and other locations as needed. A 4-ha (10-ac)
multiseason ice pad would be developed and used throughout
construction. This ice pad would be constructed near the WOC from 2021
to 2022 and rotated on an annual basis.
Pipelines for the Willow Development would be installed during the
winter season from ice roads. Following VSMs and horizontal support
members (HSMs) assembly and installation; pipelines would be placed,
welded, tested, and installed on pipe saddles on top of the HSMs.
ConocoPhillips expects that the Colville River horizontal directional
drilling pipeline crossing would be completed during the 2022 winter
season. Pipeline installation would take approximately 1 to 3 years per
pipeline, depending on several parameters such as pipeline length and
location.
In 2024 at BT1, a drill rig would be mobilized, and drilling would
begin prior to the WCF and drill site facilities being completed.
ConocoPhillips estimates about 18 to 24 months of ``pre-drilling''
activities to occur, allowing the WCF to be commissioned immediately
after its construction. Wells would be drilled consecutively from BT1,
BT3, and BT2; however, the timing and order is based upon drill rig
availability and economic decisionmaking. A second drilling rig may be
utilized during the drilling phase of the Willow Development as well.
ConocoPhillips estimates that drilling would occur year-round through
2030, with approximately 20 to 30 days of drilling per well.
Post-drilling phase and WCF startup, standard production and
operation activities would take place. ConocoPhillips estimates that
production would begin in the fourth quarter of 2025 with well
maintenance operations occurring intermittently throughout the
oilfield's lifespan.
ConocoPhillips plans to develop several bridges, installed via in-
water pile-driving at Judy Creek, Fish Creek, Judy Creek Kayyaaq,
Willow Creek 2, and Willow Creek 4. Pilings would be located above the
ordinary high-water level and consist of sheet pile abutments done in
sets of four, positioned approximately 12.2 to 21.3 m (40 to 70 ft)
apart. Crossings over Willow Creek 4a and Willow Creek 8 would be
constructed as single-span bridges, approximately 15.2 to 18.3 m (50 to
60 ft) apart using sheet pile abutments. Additionally, bridges would be
constructed during the winter season from ice roads and pads. Screeding
activities and marine traffic for the Willow project may also take
place at the Oliktok Dock in the KRU.
Liberty Drilling and Production Island
The Liberty reservoir is located in Federal waters in Foggy Island
Bay about 13 km (8 mi) east of the Endicott Satellite Drilling Island
(SDI). Hilcorp plans to build a gravel island situated over the
reservoir with a full on-island processing facility (similar to
Northstar). The Liberty pipeline includes an offshore segment that
would be buried in the seafloor for approximately 9.7 km (6 mi), and an
onshore, VSM-mounted segment extending from the shoreline approximately
3.2 km (2 mi) to the Badami tie-in. Onshore infrastructure would
include a gravel mine site, a 0.29-ha (0.71-ac) gravel pad at the
Badami pipeline tie-in and a 6.1-ha (0.15-ac) gravel pad to allow for
winter season ice road crossing. Environmental, archeological, and
geotechnical work activities would take place to support the
development and help inform decisionmaking. Development of the Liberty
Island would include impact driving for conductor pipes/foundation
pipes, vibratory drilling for conductor pipes, and vibratory and impact
driving for sheet pile.
Road vehicles would use the Alaska Highway System to transport
material and equipment from supply points in Fairbanks, Anchorage, or
outside of Alaska to the supply hub of Deadhorse. Additionally, North
Slope gravel roads would be used for transport from Deadhorse to the
Endicott SDI. Existing gravel roads within the Endicott field between
the MPI and the SDI would also be used to support the project.
During the winter seasons, workers would access the Liberty Island
area from existing facilities via gravel roads and the ice road system.
Construction vehicles would be staged at the construction sites,
including the gravel mine. Access to the Liberty Drilling and
Production Island (LDPI) by surface transportation is limited by
periods when ice roads can be constructed and used. Additionally,
surface transportation to the onshore pipeline can take place in winter
on ice roads and can also occur in summer by approved tundra travel
vehicles (e.g., Rolligons). The highest volume of traffic would occur
during gravel hauls to create the LDPI. Gravel hauling to the island
would require approximately 14 trucks working for 76 days (BOEM 2018).
An estimated 21,400 surface vehicle trips would occur per season during
island construction.
In general, ice roads would be used in the winter seasons, marine
vessels would be used in the summer seasons, helicopters would be used
across both seasons, and hovercraft (if necessary) would be used during
the shoulder season when ice roads and open water are not available. By
spring breakup, all materials needed to support the ongoing
construction would have been transported over the ice road system.
[[Page 42996]]
Additionally, personnel would access the island by helicopter (likely a
Bell 212) or if necessary, via hovercraft. During the open-water
season, continued use of helicopter and hovercraft would be utilized to
transport personnel--however, crew boats may also be used.
Construction materials and supplies would be mobilized to the site
by barge from West Dock or Endicott. Larger barges and tugs can over-
winter in the Prudhoe Bay area and travel to the LDPI in the open-water
season, generally being chartered on a seasonal basis or long-term
contract. Vessels would include coastal and ocean-going barges and tugs
to move large modules and equipment and smaller vessels to move
personnel, supplies, tools, and smaller equipment. Barge traffic
consisting of large ocean-going barges originating from Dutch Harbor is
likely to consist of one-to-two vessels, approximately two-to-five
times per year during construction, and only one trip every 5 years
during operations. During the first 2 years following LDPI
construction, hovercraft may make up to three trips per day from
Endicott SDI to LDPI. After those 2 years, hovercraft may make up to
two trips per day from Endicott SDI to LDPI (approximately 11.3 km [7
mi]).
Air operations are often limited by weather conditions and
visibility. In general, air access would be used for movement of
personnel and foodstuffs and for movement of supplies or equipment when
necessary. Fixed-wing aircraft may be used on an as-needed basis for
purposes of spill response (spill delineation) and aerial
reconnaissance of anomalous conditions or unless otherwise required by
regulatory authority. Helicopter use is planned for re-supply during
the broken-ice seasons and access for maintenance and inspection of the
onshore pipeline system. In the period between completion of hydro-
testing and facilities startup, an estimated one-to-two helicopter
flights per week are also expected for several weeks for personnel
access and to transport equipment to the tie-in area. Typically, air
traffic routing is as direct as possible from departure locations such
as the SDI, West Dock, or Deadhorse to the LDPI, with routes and
altitude adjusted to accommodate weather, other air traffic, and
subsistence activities. Hilcorp would minimize potential disturbance to
mammals from helicopter flights to support LDPI construction by
limiting the flights to an established corridor from the LPDI to the
mainland and except during landing and takeoff, and these flights would
maintain a minimum altitude of 457 m (1,500 ft) above ground level
(AGL) unless inclement weather requires deviation. Equipment located at
the pipeline tie-in location and the pipeline shore landing would be
accessed by helicopter or approved tundra travel vehicles to minimize
impacts to the tundra.
Additionally, Hilcorp may use unmanned aerial surveys (UASs) during
pile driving, pipe driving, and slope shaping and armament activities
during the open-water season in Year 2 of construction and subsequently
during decommissioning to monitor for whales or seals that may occur in
incidental Level B harassment zones as described in the 2019 LOA issued
by the National Marine Fisheries Service (NMFS 2020). Recent
developments in the technical capacity and civilian use of UASs
(defined as vehicles flying without a human pilot on board) have led to
some investigations into potential use of these systems for monitoring
and conducting aerial surveys of marine mammals (Koski et al. 2009;
Hodgson et al. 2013). UASs, operating under autopilot and mounted with
Global Positioning System (GPS) and imaging systems, have been used and
evaluated in the Arctic (Koski et al. 2009) and have potential to
replace traditional manned aerial surveys and provide an improved
method for monitoring marine mammal populations. Hilcorp plans to seek
a waiver, if necessary, from the Federal Aviation Administration (FAA)
to operate the UAS above 122 m (400 ft) and beyond the line of sight of
the pilot. Ground control for the UAS would be located at Liberty
Island, Endicott, or another shore-based facility close to Liberty
(NMFS 2020).
After construction, aircraft, land vehicle, and marine traffic may
be at similar levels as those described for Northstar Island, although
specific details beyond those presented here are not presently known.
Ice roads would be used for onshore and offshore access, installing
the pipeline, hauling gravel used to construct the island, moving
equipment on/off the island, and personnel and supply transit. Ice road
construction can typically be initiated in mid- to late-December and
can be maintained until mid-May, weather depending. Ice road #1 would
extend approximately 11.3 km (7 mi) over shorefast sea ice from the
Endicott SDI to the LDPI (the SDI to LDPI ice road). It would be
approximately 37 m wide (120 ft) with a driving lane of approximately
12 m (40 ft) and cover approximately 64.8 ha (160 ac) of sea ice. Ice
road #2 (approximately 11.3 km [7 mi]) would connect the LDPI to the
proposed Kadleroshilik River gravel mine site and then would continue
to the juncture with the Badami ice road (which is ice road #4). It
would be approximately 15 m (50 ft) wide. Ice road #3 (approximately
9.6 km [6 mi], termed the ``Midpoint Access Road'') would intersect the
SDI to LDPI ice road and the ice road between the LDPI and the mine
site. It would be approximately 12 m (40 ft) wide. Ice road #4
(approximately 19.3 km [12 mi]), located completely onshore, would
parallel the Badami pipeline and connect the mine site with the
Endicott road.
All four ice roads would be constructed for the first 3 years to
support pipeline installation and transportation from existing North
Slope roads to the proposed gravel mine site, and from the mine site to
the proposed LDPI location in the Beaufort Sea. After Year 3, only ice
road #1 would be constructed to allow additional materials and
equipment to be mobilized to support LDPI, pipeline, and facility
construction activities as all island construction and pipeline
installation should be complete by Year 3. In addition to the ice
roads, three ice pads are proposed to support construction activities
(Year 2 and Year 3). These would be used to support LDPI, pipeline
(including pipe stringing and two stockpile/disposal areas), and
facilities construction. A fourth staging area ice pad (approximately
107 by 213 m (350 by 700 ft) would be built on the sea ice on the west
side of the LDPI during production well drilling operations.
Other on-ice activities occurring prior to March 1 may include
spill training exercises, pipeline surveys, snow clearing, and work
conducted by other snow vehicles such as a Pisten Bully, snow machine,
or Rolligon. Prior to March 1, these activities would occur outside of
the delineated ice road/trail and shoulder areas.
The LDPI would include a self-contained offshore drilling and
production facility located on an artificial gravel island with a
subsea pipeline to shore. The LDPI would be located approximately 8 km
(5 mi) offshore in Foggy Island Bay and 11.7 km (7.3 mi) southeast of
the existing SDI on the Endicott causeway. The LDPI would be
constructed of reinforced gravel in 5.8 m (19 ft) of water and have a
working surface of approximately 3.8 ha (9.3 ac). A steel sheet pile
wall would surround the island to stabilize the placed gravel, and the
island would include a slope protection bench, dock and ice road
access, and a seawater intake area.
[[Page 42997]]
Hilcorp would begin constructing the LDPI during the winter
immediately following construction of the ice road from the mine site
to the island location. Sections of sea ice at the island's location
would be cut using a ditchwitch and removed. A backhoe and support
trucks using the ice road would move ice away. Once the ice is removed,
gravel would be poured through the water column to the sea floor,
building the island structure from the bottom up. A conical pile of
gravel (hauled in from trucks from the mine site using the ice road)
would form on the sea floor until it reaches the surface of the ice.
Gravel hauling over the ice road to the LDPI construction site is
estimated to continue for 50 to 70 days and conclude mid-April or
earlier depending on road conditions. The construction would continue
with a sequence of removing additional ice and pouring gravel until the
surface size is achieved.
Following gravel placement, slope armoring and protection
installation would occur. Using island-based equipment (e.g., backhoe,
bucket-dredge) and divers, Hilcorp would create a slope protection
profile consisting of an 18.3-m (60-ft)-wide bench covered with a
linked concrete mat that extends from a sheet pile wall surrounding the
island to slightly above medium lower low water. The linked concrete
mat requires a high-strength, yet highly permeable, woven polyester
fabric under layer to contain the gravel island fill. The filter fabric
panels would be overlapped and tied together side-by-side (requiring
diving operations) to prevent the panels from separating and exposing
the underlying gravel fill. Because the fabric is overlapped and tied
together, no slope protection debris would enter the water column
should it be damaged. Above the fabric under layer, a robust geo-grid
would be placed as an abrasion guard to prevent damage to the fabric by
the linked mat armor. The concrete mat system would continue at a 3:1
slope another 26.4 m (86.5 ft) into the water, terminating at a depth
of 5.8 m (19 ft). In total, from the sheet pile wall, the bench and
concrete mat would extend 44.7 m (146.5 ft). Island slope protection is
required to ensure the integrity of the gravel island by protecting it
from the erosive forces of waves, ice ride-up, and currents. A detailed
inspection of the island slope protection system would be conducted
annually during the open-water season to document changes in the
condition of this system that have occurred since the previous year's
inspection. Any damaged material would be removed. Above-water
activities would consist of a visual inspection of the dock and sheet
pile enclosure that would document the condition of the island bench
and ramps. The below-water slopes would be inspected by divers or, if
water clarity allows, remotely by underwater cameras contracted
separately by Hilcorp. The results of the below-water inspection would
be recorded for repair if needed. No vessels would be required. Multi-
beam bathymetry and side-scan sonar imagery of the below-water slopes
and adjacent sea bottom would be acquired using a bathymetry vessel.
The sidescan sonar would operate at a frequency between 200 and 400
kHz. The single-beam echosounder would operate at a frequency of about
210 kHz.
Once the slope protection is in place, Hilcorp would install the
sheet pile wall around the perimeter of the island using vibratory and,
if necessary, impact hammers. Sheet pile driving is anticipated to be
conducted between March and August, during approximately 4 months of
the ice-covered season and, if necessary, approximately 15 days during
the open-water season. Sheet pile driving methods and techniques are
expected to be similar to the installation of sheet piles at Northstar
during which all pile driving was completed during the ice-covered
season. Therefore, Hilcorp anticipates most or all sheet pile would be
installed during ice-covered conditions. Hilcorp anticipates driving up
to 20 piles per day to a depth of 7.62 m (25 ft). A vibratory hammer
would be used first, followed by an impact hammer to ``proof'' the
pile. Hilcorp anticipates each pile needing 100 hammer strikes over
approximately 2 minutes (100 strikes) of impact driving to obtain the
final desired depth for each sheet pile. To finish installing up to 20
piles per day, the impact hammer would be used a maximum of 40 minutes
per day with an anticipated duration of 20 minutes per day.
For vibratory driving, pile penetration speed can vary depending on
ground conditions, but a minimum sheet pile penetration speed is 0.5 m
(20 in) per minute to avoid damage to the pile or hammer (NASSPA 2005).
For this project, the anticipated duration is based on a preferred
penetration speed greater than 1 m (40 in) per minute, resulting in 7.5
minutes to drive each pile. Given the high storm surge and larger waves
that are expected to arrive at the LDPI site from the west and
northwest, the wall would be higher on the west side than on the east
side. At the top of the sheet-pile wall, overhanging steel ``parapet''
would be installed to prevent wave passage over the wall.
Within the interior of the island, 16 steel conductor pipes would
be driven to a depth of 49 m (160 ft) to provide the initial stable
structural foundation for each oil well. They would be set in a well
row in the middle of the island. Depending on the substrate, the
conductor pipes would be driven by impact or vibratory methods or both.
During the construction of the nearby Northstar Island (located in
deeper water), it took 5 to 8.5 hours to drive one conductor pipe
(Blackwell et al. 2004). For the Liberty LDPI, based on the 20 percent
impact hammer usage factor (USDOT 2006.), it is expected that two
cumulative hours of impact pipe driving (4,400 to 3,600 strikes) would
occur over a 10.5 non-consecutive hour day. Conductor pipe driving is
anticipated to be conducted between March and August and take 16 days
total, installing one pipe per day. In addition, approximately 700 to
1,000 foundation piles may also be installed within the interior of the
island should engineering determine they are necessary for island
support.
The LDPI layout includes areas for staging, drilling, production,
utilities, a camp, a relief well, a helicopter landing pad, and two
docks to accommodate barges, a hovercraft, and small crew boats. It
would also have ramps for ice road and amphibious vehicle access. An
STP would also be located at the facility to treat seawater and then
commingle it with produced water to be injected into the Liberty
Reservoir to maintain reservoir pressure. Treated seawater would be
used to create potable water and utility water for the facility. A
membrane bioreactor would treat sanitary wastewater, and remaining
sewage solids would be incinerated on the island or stored in enclosed
tanks prior to shipment to Deadhorse for treatment.
All modules, buildings, and material for onsite construction would
be trucked to the North Slope via the Dalton Highway and staged at West
Dock, Endicott SDI, or in Deadhorse. Another option is to use ocean-
going barges from Dutch Harbor to transport materials or modules to the
island during the open-water season.
Depending on the season, equipment and material would be
transported via coastal barges in open water, or ice roads from SDI in
the winter. The first modules would be delivered in the third quarter
of Year 2 to support the installation of living, drilling, and
production facilities. Remaining process modules would be delivered to
[[Page 42998]]
correspond with first oil and the ramp-up in drilling capacity.
Onsite facility installation would commence in August of Year 2 and
be completed by the end of Year 4 (May) to accommodate the overall
construction and production ramp-up schedule. Some facilities that are
required early would be barged in the third quarter of Year 2 and would
be installed and operational by the end of the fourth quarter of Year
2. Other modules would be delivered as soon as the ice road from SDI is
in place. The drilling unit and associated equipment would be
transferred by barge through Dutch Harbor or from West Dock to the LDPI
during the open-water season in Year 2 using a seagoing barge and ocean
class tug. The seagoing barge is ~30.5 m (100 ft) wide and ~122 m (400
ft) long, and the tug is ~30.5 m (100 ft) long. Although the exact
vessels to be used are unknown, Crowley lists Ocean class tugs at
<1,600 gross registered tonnage. The weight of the seagoing barge is
not known at this time.
Hilcorp would install a pipe-in-pipe subsea pipeline consisting of
a 30.5-cm (12-in)-diameter inner pipe and a 40.6-cm (16-in)-diameter
outer pipe to transport oil from the LDPI to the existing Badami
pipeline. Pipeline construction is planned for the winter after the
island is constructed. A schematic of the pipeline can be found in
Figure 2-3 of BOEM's Final EIS available at <a href="https://www.boem.gov/Hilcorp-Liberty/">https://www.boem.gov/Hilcorp-Liberty/</a>. The pipeline would extend from the LDPI, across Foggy
Island Bay, and terminate onshore at the existing Badami Pipeline tie-
in location. For the marine segment, construction would progress from
shallower water to deeper water with multiple construction spreads.
To install the pipeline, a trench would be excavated using ice-
road-based long-reach excavators with pontoon tracks. The pipeline
bundle would be lowered into the trench using side booms to control its
vertical and horizontal position, and the trench would be backfilled by
excavators using excavated trench spoils and select backfill. Hilcorp
intends to place all material back in the trench slot. All work would
be done from ice roads using conventional excavation and dirt-moving
construction equipment. The target trench depth is 2.7 to 3.4 m (9 to
11 ft) with a proposed maximum depth of cover of approximately 2.1 m (7
ft). The pipeline would be approximately 9 km (5.6 mi) long.
At the pipeline landfall (where the pipeline transitions from
onshore to offshore), Hilcorp would construct an approximately 0.6-ha
(1.4-ac) trench to protect against coastal erosion and ice ride-up
associated with onshore sea ice movement and to accommodate the
installation of thermosiphons (heat pipes that circulate fluid based on
natural convection to maintain or cool ambient ground temperature)
along the pipeline. The onshore pipeline would cross the tundra for
almost 2.4 km (1.5 mi) until it intersects the existing Badami pipeline
system. The single wall 30.5-cm (12-in) pipeline would rest on 150 to
170 VSMs, spaced approximately 15 m (50 ft) apart to provide the
pipeline a minimum 2.1-m (7-ft) clearance above the tundra. Hydro-
testing (pressure testing using sea water) of the entire pipeline would
be required to complete pipeline commissioning.
The final drill rig has yet to be chosen but has been narrowed to 2
options and would accommodate drilling of 16 wells. The first option is
the use of an existing platform-style drilling unit that Hilcorp owns
and operates in the Cook Inlet. Designated as Rig 428, the rig has been
used recently and is well suited in terms of depth and horsepower
rating to drill the wells at Liberty. A second option that is being
investigated is a new build drilling unit that would be built not only
to drill Liberty development wells but would be more portable and more
adaptable to other applications on the North Slope. Regardless of drill
rig type, the well row arrangement on the island is designed to
accommodate up to 16 wells. While Hilcorp is proposing a 16-well
design, only 10 wells would be drilled. The six additional well slots
would be available as backups or for potential in-fill drilling if
needed during the project life.
Drilling would be done using a conventional rotary drilling rig,
initially powered by diesel, and eventually converted to fuel gas
produced from the third well. Gas from the third well would also
replace diesel fuel for the grind-and-inject facility and production
facilities. A location on the LDPI is designated for drilling a relief
well, if needed.
Process facilities on the island would separate crude oil from
produced water and gas. Gas and water would be injected into the
reservoir to provide pressure support and increase recovery from the
field. A single-phase subsea pipe-in-pipe pipeline would transport
sales-quality crude from the LDPI to shore, where an aboveground
pipeline would transport crude to the existing Badami pipeline. From
there, crude would be transported to the Endicott Sales Oil Pipeline,
which ties into Pump Station 1 of the TAPS for eventual delivery to a
refinery.
North Slope Gas Development
The AOGA Request discusses two projects currently submitted for
approval and permitting that would transport natural gas from the North
Slope via pipeline. Only a small fraction of this project would fall
within the 40-km (25-mi) inland jurisdiction area of this ITR. The two
projects are the Alaska Liquified Natural Gas Project (Alaska LNG) and
the Alaska Stand Alone Pipeline (ASAP). Both of these projects are
discussed below and their effects analyzed in this ITR, but only one
project could be constructed during the 2021-2026 period.
Alaska Liquefied Natural Gas Project (Alaska LNG)
The Alaska LNG project has been proposed by the Alaska Gasline
Development Corporation (AGDC) to serve as a single integrated project
with several facilities designed to liquefy natural gas. The fields of
interest are the Point Thomson Unit (PTU) and PBU production fields.
The Alaska LNG project would consist of a Gas Treatment Plant (GTP); a
Point Thomson Transmission Line (PTTL) to connect the GTP to the PTU
gas production facility; a Prudhoe Bay Transmission Line (PBTL) to
connect the GTP to the PBU gas production facility; a liquefaction
facility in southcentral Alaska; and a 1,297-km (807-mi)-long, 107-cm
(42-in)-diameter pipeline (called the Mainline) that would connect the
GTP to the liquefaction facility. Only the GTP, PTTL, PBTL, a portion
of the Mainline, and related ancillary facilities would be located
within the geographic scope of AOGA's Request. Related components would
require the construction of ice roads, ice pads, gravel roads, gravel
pads, camps, laydown areas, and infrastructure to support barge and
module offloading.
Barges would be used to transport GTP modules at West Dock at
Prudhoe Bay several times annually, with GTP modules being offloaded
and transported by land to the proposed GTP facility in the PBU.
However, deliveries would require deep draft tug and barges to a newly
constructed berthing site at the northeast end of West Dock.
Additionally, some barges would continue to deliver small modules and
supplies to Point Thomson. Related activities include screeding,
shallow draft tug use, sea ice cutting, gravel placement, sea ice road
and sea ice pad development, vibratory and impact pile driving, and the
use of an offshore barge staging area.
[[Page 42999]]
A temporary bridge (developed from ballasted barges) would be
developed to assist in module transportation. Barges would be ballasted
when the area is ice-free and then removed and overwintered at West
Dock before the sea freezes over. A staging area would then be used to
prepare modules for transportation, maintenance, and gravel road
development. Installation of ramps and fortification would utilize
vibratory and impact pile driving. Seabed preparations and level
surface preparations (i.e., ice cutting, ice road development, gravel
placement, screeding) would take place as needed. Breasting/mooring
dolphins would be installed at the breach point via pile driving to
anchor and stabilize the ballasted barges.
A gravel pad would be developed to assist construction of the GTP,
adjacent camps, and other relevant facilities where work crews utilize
heavy equipment and machinery to assemble, install, and connect the GTP
modules. To assist, gravel mining would use digging and blasting, and
gravel would be placed to create pads and develop or improve ice and
gravel roads.
Several types of development and construction would be required at
different stages of the project. The construction of the Mainline would
require the use of ice pads, ice roads, gravel roads, chain trenchers,
crane booms, backhoes, and other heavy equipment. The installation of
the PTTL and PBTL would require ice roads, ice pads, gravel roads,
crane booms, mobile drills or augers, lifts, and other heavy equipment.
After installation, crews would work on land and streambank
restoration, revegetation, hydrostatic testing, pipeline security, and
monitoring efforts. The development of the ancillary facility would
require the construction of ice roads, ice pads, as well as minimal
transportation and gravel placement.
Alaska Stand Alone Pipeline (ASAP)
The ASAP is the alternative project option that AGDC could utilize,
allowing North Slope natural gas to be supplied to Alaskan communities.
ASAP would require several components, including a Gas Conditioning
Facility (GCF) at Prudhoe Bay; a 1,180-km (733-mi)-long, 0.9-m (36-in)-
diameter pipeline that would connect the GCF to a tie-in found in
southcentral Alaska (called the Mainline); and a 48-km (30-m), 0.3-m
(12-in)-diameter lateral pipeline connecting the Mainline pipeline to
Fairbanks (referred to as the Fairbanks Lateral). Similar to the Alaska
LNG pipeline, only parts of this project would fall within the
geographic scope of this ITR. These relevant project components are the
GCF, a portion of the ASAP Mainline, and related ancillary facilities.
Construction would include the installation of supporting facilities
and infrastructure, ice road and pad development, gravel road and pad
development, camp establishment, laydown area establishment, and
additional infrastructure to support barge and module offloading.
Barges would be used to transport the GCF modules to West Dock in
Prudhoe Bay and would be offloaded and transported by ground to the
proposed facility site within the PBU. Module and supply deliveries
would utilize deep draft tugs and barges to access an existing berthing
location on the northeast side of West Dock called DH3. Maintenance on
DH3 would be required to accommodate the delivery of larger loads and
would consist of infrastructure reinforcement and elevation increases
on one of the berths. In the winter, a navigational channel and turn
basin would be dredged to a depth of 2.7 m (9 ft). Dredged material
would be disposed of on ground-fast ice found in 0.6-1.2 m (2-4 ft)
deep water in Prudhoe Bay. An offshore staging area would be developed
approximately 4.8-8 km (3-5 mi) from West Dock to allow deep draft tugs
and barges to stage before further transportation to DH3 and subsequent
offload by shallow draft tugs. Other activities include seabed
screeding, gravel placement, development of a sea ice road and pads,
and pile driving (vibratory and impact) to install infrastructure at
West Dock.
A temporary bridge (composed of ballasted barges and associated
infrastructure) paralleling an existing weight-limited bridge would be
developed to assist in transporting large modules off West Dock. Barges
would be ballasted when the area is ice-free and then removed and
overwintered at West Dock before the sea freezes over. A staging area
would be used to prepare modules for transportation, maintenance, and
gravel road development. The bridge construction would require ramp
installation, fortification through impact, and vibratory pile driving.
Support activities (development of ice roads and pads, gravel roads and
pads, ice cutting, seabed screeding) would also take place. Breasting/
mooring dolphins would be installed at the breach point via pile
driving to anchor and stabilize the ballasted barges.
A gravel facility pad would be formed to assist in the construction
of the GCF. Access roads would then be developed to allow crews and
heavy equipment to install and connect various GCF modules. Gravel
would be obtained through digging, blasting, transportation, gravel pad
placement, and improvements to other ice and gravel roads.
The construction of the Mainline pipeline would require the
construction of ice pads, ice roads, and gravel roads along with the
use of chain trenchers, crane booms, backhoes, and other heavy
equipment. Block valves would be installed above ground along the
length of the Mainline. After installation, crews would work on land
and streambank restoration, revegetation, hydrostatic testing, pipeline
security, and monitoring efforts.
Pikka Unit
The Pikka Development (formally known as the Nanshuk Project) is
located approximately 83.7 km (52 mi) west of Deadhorse and 11.3 km (7
mi) northeast of Nuiqsut. Oil Search Alaska operates leases held
jointly between the State of Alaska and ASRC located southeast of the
East Channel of the Colville River. Pikka is located further southwest
from the existing Oooguruk Development Project, west of the existing
KRU, and east of Alpine and Alpine's Satellite Development Projects.
Most of the infrastructure is located over 8 km (5 mi) from the coast
within the Pikka Unit; however, Oil Search Alaska expects some smaller
projects and activities to occur outside the unit to the south, east,
and at Oliktok Point.
The Pikka Project would include a total of 3 drill-sites for
approximately 150 (production, injectors, underground injection) wells,
as well as the Nanshuk Processing Facility (NPF), the Nanushuk
Operations Pad, a tie-in pad (TIP), various camps, warehouses,
facilities on pads, infield pipelines, pipelines for import and export
activities, various roads (ice, infield, access), a boat ramp, and a
portable water system. Additionally, there are plans to expand the
Oliktok Dock and to install an STP adjacent to the already existing
infrastructure. A make-up water pipeline would also be installed from
the STP to the TIP. Oil Search Alaska also plans to perform minor
upgrades and maintenance, as necessary, to the existing road systems to
facilitate transportation of sealift modules from Oliktok Point to the
Pikka Unit.
Oil Search Alaska plans to develop a pad to station the NPF and all
relevant equipment and operations (i.e., phase separation, heating and
cooling, pumping, gas treatment and compression for gas injections,
water treatment for injection). All oil procured, processed, and
designated for
[[Page 43000]]
sale would travel from the NPF to the TIP near Kuparuk's CPF 2 via the
Pikka Project pipeline that would tie in to the Kuparuk Sales Pipeline
and would then be transported to TAPS. Construction of the pad would
allow for additional space that could be repurposed for drilling or for
operational use during the development of the Pikka Project. This pad
would contain other facilities required for project operation and
development, including: Metering and pigging facilities; power
generation facilities; a truck fill station; construction material
staging areas; equipment staging areas; a tank farm (contains diesel,
refined fuel, crude oil, injection water, production chemicals, glycol,
and methanol storage tanks); and a central control room. All major
components required for the development of the NPF would be constructed
off-site and brought in via truck or barge during the summer season.
Barges would deliver and offload necessary modules at Oliktok Dock,
which would travel to the NPF site during summer months. Seabed
screeding would occur at Oliktok Point to maintain water depth for
necessary barges.
Pikka would use gravel roads to the Unit, which would allow year-
round access from the Dalton Highway. All gravel needed for project
activities (approximately 112 ha [276 ac]) would be sourced from
several existing gravel mine sites. A majority of gravel acquisition
and laying would occur during the winter season and then be compacted
in the summer. All equipment and supplies necessary would be brought in
on existing roads from Anchorage or Fairbanks to Deadhorse. Supplies
and equipment would then be forwarded to the Pikka Unit; no aerial
transportation for supplies is expected. Regular traffic is expected
once construction of the roads is completed; Oil Search Alaska expects
arterial routes between the processing facilities and camps to
experience the heaviest use of traffic. Drill-site access roads are
expected to experience the least amount of traffic; however, drill-site
traffic is expected to increase temporarily during periods of active
drilling, maintenance, or other relevant aspects of the project.
Standard vehicles would include light passenger trucks, heavy tractor-
trailer trucks, heavy equipment, and oil rigs.
Several types of aircraft operations are expected at the Pikka Unit
throughout the 2021-2026 period. Personnel would be transported to
Pikka via commercial flights from Deadhorse Airport and by ground-based
vehicle transport. Currently, there is no plan to develop an airstrip
at Pikka. Personnel flights are expected to be infrequent to and from
the Pikka Unit; however, Oil Search Alaska expects that some transport
directly to the Unit may be required. Several environmental studies
performed via aircraft are expected during the ITR period. Some of
these include AIR surveys, cultural resources, stick-picking, and
hydrology studies. AIR surveys in support of the Pikka Unit would occur
annually to locate polar bear dens.
Summer travel would utilize vehicles such as Rolligons and Tuckers
to assess pipelines not found adjacent to the gravel roads. During 24-
hour sunlight periods, these vehicles would operate across all hours.
Stick-picking and thermistor retrieval would also occur in the summer.
In the winter, ice roads would be constructed across the Unit. These
ice roads would be developed to haul gravel from existing mine sites to
haul gravel for road and pad construction. Ice roads would also be
constructed to support the installation of VSM and pipelines. Off-road
winter vehicles would be used when the tundra is frozen and covered
with snow to provide maintenance and access for inspection. Temporary
ice roads and ice pads would be built to allow for the movement and
staging of heavy equipment, maintenance, and construction. Oil Search
Alaska would perform regular winter travel to support operations across
the Pikka Unit.
Oil Search Alaska plans to install a bridge over the Kachemach
River (more than 8 km [5 mi] from the coast) and install the STP at
Oliktok Point. Both projects would require in-water pile driving, which
is expected to take place during the winter seasons. In-water pile
driving (in the winter), placement of gravel fill (open-water period),
and installation of the STP barge outfall structure (open-water period)
would take place at Oliktok Point. Dredging and screeding activities
would prepare the site for STP and module delivery via barge. Annual
maintenance screeding and dredging (expected twice during the Request
period) may be needed to maintain the site. Dredging spoils would be
transported away, and all work would occur during the open-water season
between May and October. Screeding activities are expected to take
place annually over the course of a 2-week period, depending on
stability and safety needs.
Gas Hydrate Exploration and Research
The U.S. Geological Survey (USGS) estimates that the North Slope
contains over 54 trillion cubic feet of recoverable gas assets
(Collette et al. 2019). Over the last 5 years, Industry has
demonstrated a growing interest in the potential to explore and extract
these reserves. Federal funds from the Department of Energy have been
provided in the past to support programs on domestic gas hydrate
exploration, research, and development. Furthermore, the State of
Alaska provides support for gas hydrate research and development
through the development of the Eileen hydrate trend deferred area near
Milne Point, with specific leases being offered for gas hydrate
research and exploration.
As of 2021, a few gas hydrate exploration and test wells have been
drilled within the Beaufort Sea region. Due to the support the gas
hydrate industry has received, AOGA expects continued interest to grow
over the years. As such, AOGA expects that a relatively low but
increasing amount of gas hydrate exploration and research is expected
throughout the 2021-2026 period.
Environmental Studies
Per AOGA's Request, Industry would continue to engage in various
environmental studies throughout the life of the ITR. Such activities
include: Geological and geotechnical surveys (i.e., seismic surveys);
surveys on geomorphology (soils, ice content, permafrost), archeology
and cultural resources; vegetation mapping; analysis of fish, avian,
and mammal species and their habitats; acoustic monitoring; hydrology
studies; and various other freshwater, marine, and terrestrial studies
of the coastal and offshore regions within the Arctic. These studies
typically include various stakeholders, including consultants and
consulting companies; other industries; government; academia
(university-level); nonprofits and nongovernmental organizations; and
local community parties. However, AOGA's 2021-2026 ITR Request seeks
coverage only for environmental studies directly related to Industry
activities (e.g., monitoring studies in response to regulatory
requirements). No third-party studies will be covered except by those
mentioned in this ITR and the AOGA Request.
During the 2021-2026 lifespan of the ITR, Industry would continue
studies that are conducted for general monitoring purposes for
regulatory and/or permit requirements and for expected or planned
exploration and development activities within the Beaufort Sea region.
Environmental studies are anticipated to occur during the summer season
as to avoid overlap with any denning polar bears. Activities
[[Page 43001]]
may utilize vessels, fixed-wing aircrafts, or helicopters to access
research sites.
Mitigation Measures
AOGA has included in their Request a number of measures to mitigate
the effects of the proposed activities on Pacific walruses and polar
bears. Many of these measures have been historically used by oil and
gas entities throughout the North Slope of Alaska and have been
developed as a part of past coordination with the Service. Measures
include: Development and adherence to polar bear and Pacific walrus
interaction plans; design of facilities to reduce the possibility of
polar bears reaching attractants; avoidance of operating equipment near
potential den locations; flying aircraft at a minimum altitude and
distance from polar bears and hauled out Pacific walruses; employing
trained protected species observers; and reporting all polar bear or
Pacific walrus encounters to the Service. Additional descriptions of
these measures can be found in the AOGA Request for an ITR at:
<a href="http://www.regulations.gov">www.regulations.gov</a> in Docket No. FWS-R7-ES-2021-0037.
Maternal Polar Bear Den Survey Flights
Per AOGA's Request, Industry will also conduct aerial infrared
(AIR) surveys to locate maternal polar bear dens in order to mitigate
potential impacts to mothers and cubs during the lifetime of this ITR.
AIR surveys are used to detect body heat emitted by polar bears, which,
in turn, is used to determine potential denning polar bears. AIR
surveys are performed in winter months (December or January) before
winter activities commence. AIR imagery is analyzed in real-time during
the flight and then reviewed post-flight with the Service to identify
any suspected maternal den locations, ensure appropriate coverage, and
check the quality of the images and recordings. Some sites may need to
be resurveyed if a suspected hotspot (heat signature detectable in a
snowdrift) is observed. These followup surveys of hotspots are
conducted in varying weather conditions or using an electro-optical
camera during daylight hours. On-the-ground reconnaissance or the use
of scent-training dogs may also be used to recheck the suspected den.
Surveys utilize AIR cameras on fixed-wing aircrafts with flights
typically flown between 245-457 meters (800-1,500 feet) above ground
level at a speed of <185 km/h (<115 mph). Surveys typically occur twice
a day (weather permitting) during periods of darkness (civil twilight)
across the North Slope for less than 4.5 hours per survey. Surveys are
highly dependent on the weather as it can affect the image quality of
the AIR video and the safety of the participants. These surveys do not
follow a typical transect configuration; instead they are concentrated
on areas that would be suitable for polar bear denning activity such as
drainages, banks, bluffs, or other areas of topographic relief around
sites where Industry has winter activities, tundra travel, or ice road
construction planned or anticipated. As part of AOGA's Request and as
described in the mitigation measures included in this ITR, all denning
habitat within 1 mile of the ice-season industrial footprint will be
surveyed twice each year. In years where seismic surveys are proposed,
all denning habitat within the boundaries of the seismic surveys will
be surveyed three times, and a third survey will be conducted on
denning habitat along the pipeline between Badami and the road to
Endicott Island. Greater detail on the timing of these surveys can be
found in Methods for Modeling the Effects of Den Disturbance.
A suspected heat signature observed in a potential den found via
AIR is classified into three categories: A hotspot, a revisit, or a
putative den. The following designations are discussed below.
A ``hotspot'' is a warm spot found on the AIR camera indicative of
a polar bear den through the examination of the size and shape near the
middle of the snow drift. Signs of wildlife presence (e.g., digging,
tracks) may be present and visible. Suspected dens that are open (i.e.,
not drifted closed by the snow) are considered hotspots because polar
bears may dig multiple test evacuation sites when searching for an
appropriate place to den and unused dens will cool down and be excluded
from consideration. Hotspots are reexamined and either eliminated or
upgraded to a ``putative den'' designation. Industry representatives,
in coordination and compliance with the Service, may utilize other
methods outside of AIR to gather additional information on a suspected
hotspot.
A ``revisit'' is a designation for a warm spot in a snowdrift but
lacking signs of a polar bear den (e.g., tailings pile, signs of animal
activity, appropriate shape or size). These categorizations are often
revisited during a subsequent survey, upgraded to a ``hotspot''
designation, or eliminated from further consideration pending the
evidence presented.
A ``putative den'' is a hotspot that has maintained a distinct heat
signature longer than a day and is found within the appropriate
habitat. The area may show evidence of an animal's presence that may
not definitively be attributed to a non-polar bear species or cause
(e.g., a fox or other animal digging). The final determination is often
unknown as these sites are not investigated further, monitored, or
revisited in the spring.
When and if a putative den is found near planned or existing
infrastructure or activities, the Industry representatives will
immediately cease operations within 1 mile of the location and
coordinate with the Service to mitigate any potential disturbances
while further information is obtained.
Evaluation of the Nature and Level of Activities
The annual level of activity at existing production facilities in
the Request will be similar to that which occurred under the previous
regulations. The increase in the area of the industrial footprint with
the addition of new facilities, such as drill pads, pipelines, and
support facilities, is at a rate consistent with prior 5-year
regulatory periods. Additional onshore and offshore facilities are
projected within the timeframe of these regulations and will add to the
total permanent activities in the area. This rate of expansion is
similar to prior production schedules.
Description of Marine Mammals in the Specified Geographic Region
Polar Bear
Polar bears are distributed throughout the ice-covered seas and
adjacent coasts of the Arctic region. The current total polar bear
population is estimated at approximately 26,000 individuals (95 percent
Confidence Interval (CI) = 22,000-31,000, Wiig et al. 2015; Regehr et
al. 2016) and comprises 19 stocks ranging across 5 countries and 4
ecoregions that reflect the polar bear dependency on sea-ice dynamics
and seasonality (Amstrup et al. 2008). Two stocks occur in the United
States (Alaska) with ranges that extend to adjacent countries: Canada
(the Southern Beaufort Sea (SBS) stock) and the Russia Federation (the
Chukchi/Bering Seas stock). The discussion below is focused on the
Southern Beaufort Sea stock of polar bears, as the proposed activities
in this ITR would overlap only their distribution.
Polar bears typically occur at low, uneven densities throughout
their circumpolar range (DeMaster and Stirling 1981, Amstrup et al.
2011, Hamilton and Derocher 2019) in areas where the sea is ice-covered
for all or part of the year. They are typically most abundant on sea-
ice, near polynyas (i.e., areas of persistent open water) and
[[Page 43002]]
fractures in the ice, and over relatively shallow continental shelf
waters with high marine productivity (Durner et al. 2004). This sea-ice
habitat favors foraging for their primary prey, ringed seals (Pusa
hispida), and other species such as bearded seals (Erignathus barbatus)
(Thiemann et al. 2008, Cherry et al. 2011, Stirling and Derocher 2012).
Although over most of their range polar bears prefer to remain on the
sea-ice year-round, an increasing proportion of stocks are spending
prolonged periods of time onshore (Rode et al. 2015, Atwood et al.
2016b). While time spent on land occurs primarily in late summer and
autumn (Rode et al. 2015, Atwood et al. 2016b), they may be found
throughout the year in the onshore and nearshore environments. Polar
bear distribution in coastal habitats is often influenced by the
movement of seasonal sea ice (Atwood et al. 2016b, Wilson et al. 2017)
and its direct and indirect effects on foraging success and, in the
case of pregnant females, also dependent on availability of suitable
denning habitat (Durner et al. 2006, Rode et al. 2015, Atwood et al.
2016b).
In Alaska during the late summer/fall period (July through
November), polar bears from the Southern Beaufort Sea stock often occur
along the coast and barrier islands, which serve as travel corridors,
resting areas, and to some degree, foraging areas. Based on Industry
observations and coastal survey data acquired by the Service (Wilson et
al. 2017), encounter rates between humans and polar bears are higher
during the fall (July to November) than in any other season, and an
average of 140 polar bears may occur on shore during any week during
the period July through November between Utqiagvik and the Alaska--
Canada border (Wilson et al. 2017). The length of time bears spend in
these coastal habitats has been linked to sea ice dynamics (Rode et al.
2015, Atwood et al. 2016b). The remains of subsistence-harvested
bowhead whales at Cross and Barter islands provide a readily available
food attractant in these areas (Schliebe et al. 2006). However, the
contribution of bowhead carcasses to the diet of SBS polar bears varies
annually (e.g., estimated as 11-26 percent and 0-14 percent in 2003 and
2004, respectively) and by sex, likely depending on carcass and seal
availability as well as ice conditions (Bentzen et al. 2007).
Polar bears have no natural predators (though cannibalism is known
to occur; Stirling et al. 1993, Amstrup et al. 2006b). However, their
life-history (e.g., late maturity, small litter size, prolonged
breeding interval) is conducive to low intrinsic population growth
(i.e., growth in the absence of human-caused mortality), which was
estimated at 6 percent to 7.5 percent for the SBS stock during 2004-
2006 (Regehr et al. 2010; Hunter et al. 2010). The lifespan of wild
polar bears is approximately 25 years (Rode et al. 2020). Females reach
sexual maturity at 3-6 years old giving birth 1 year later (Ramsay and
Stirling 1988). In the SBS region, females typically give birth at 5
years old (Lentfer & Hensel 1980). On average, females in the SBS
produce litter sizes of 1.9 cubs (SD=0.5; Smith et al. 2007, 2010,
2013; Robinson 2014) at intervals that vary from 1 to 3 or more years
depending on cub survival (Ramsay and Stirling 1988) and foraging
conditions. For example, when foraging conditions are unfavorable,
polar bears may delay reproduction in favor of survival (Derocher and
Stirling 1992; Eberhardt 2002). The determining factor for growth of
polar bear stocks is adult female survival (Eberhardt 1990). In
general, rates above 90 percent are essential to sustain polar bear
stocks (Amstrup and Durner 1995) given low cub litter survival, which
was estimated at 50 percent (90 percent CI: 33-67 percent) for the SBS
stock during 2001-2006 (Regehr et al. 2010). In the SBS, the
probability that adult females will survive and produce cubs-of-the-
year is negatively correlated with ice-free periods over the
continental shelf (Regehr et al. 2007a). In general, survival of cubs-
of-the-year is positively related to the weight of the mother and their
own weight (Derocher and Stirling 1996; Stirling et al. 1999).
Females without dependent cubs typically breed in the spring
(Amstrup 2003, Stirling et al. 2016). Pregnant females enter maternity
dens between October and December (Durner et al. 2001; Amstrup 2003),
and young are usually born between early December and early January
(Van de Velde et al. 2003). Only pregnant females den for an extended
period during the winter (Rode et al. 2018). Other polar bears may
excavate temporary dens to escape harsh winter conditions; however,
shelter denning is rare for Alaskan polar bear stocks (Olson et al.
2017).
Typically, SBS females denning on land emerge from the den with
their cubs around mid-March (median emergence: March 11, Rode et al.
2018, USGS 2018), and commonly begin weaning when cubs are
approximately 2.3-2.5 years old (Ramsay and Stirling 1986, Arnould and
Ramsay 1994, Amstrup 2003, Rode 2020). Cubs are born blind, with
limited fat reserves, and are able to walk only after 60-70 days (Blix
and Lentfer 1979; Kenny and Bickel 2005). If a female leaves a den
during early denning, cub mortality is likely to occur due to a variety
of factors including susceptibility to cold temperatures (Blix and
Lentfer 1979, Hansson and Thomassen 1983, Van de Velde 2003), predation
(Derocher and Wiig 1999, Amstrup et al. 2006b), and mobility
limitations (Lentfer 1975). Therefore, it is thought that successful
denning, birthing, and rearing activities require a relatively
undisturbed environment. A more detailed description of the potential
consequences of disturbance to denning females can be found below in
Potential Effects of Oil and Gas Industry Activities on Pacific Walrus,
Polar Bear, and Prey Species: Polar Bear: Effects to Denning Bears.
Radio and satellite telemetry studies indicate that denning can occur
in multiyear pack ice and on land (Durner et al. 2020). The proportion
of dens on land has been increasing along the Alaska region (34.4
percent in 1985-1995 to 55.2 percent in 2007-2013; Olson et al. 2017)
likely in response to reductions in stable old ice, which is defined as
sea ice that has survived at least one summer's melt (Bowditch 2002),
increases in unconsolidated ice, and lengthening of the melt season
(Fischbach et al. 2007, Olson et al. 2017). If sea-ice extent in the
Arctic continues to decrease and the amount of unstable ice increases,
a greater proportion of polar bears may seek to den on land (Durner et
al. 2006, Fischbach et al. 2007, Olson et al. 2017).
In Alaska, maternal polar bear dens occur on barrier islands
(linear features of low-elevation land adjacent to the main coastline
that are separated from the mainland by bodies of water), river bank
drainages, and deltas (e.g., those associated with the Colville and
Canning Rivers), much of the North Slope coastal plain (in particular
within the 1002 Area, i.e., the land designated in section 1002 of the
Alaska National Interest Lands Conservation Act--part of ANWR in
northeastern Alaska; Amstrup 1993, Durner et al. 2006), and coastal
bluffs that occur at the interface of mainland and marine habitat
(Durner et al. 2006, 2013, 2020; Blank 2013; Wilson and Durner 2020).
These types of terrestrial habitat are also designated as critical
habitat for the polar bear under the Endangered Species Act (75 FR
76086, December 7, 2010). Management and conservation concerns for the
SBS and Chukchi/Bering Seas (CS) polar bear stocks include sea-ice loss
due to climate change, human-bear conflict, oil and gas industry
activity, oil spills and contaminants, marine shipping, disease, and
the potential for
[[Page 43003]]
overharvest (Regehr et al. 2017; U.S. Fish and Wildlife Service 2016).
Notably, reductions in physical condition, growth, and survival of
polar bears have been associated with declines in sea-ice (Rode et al.
2014, Bromaghin et al. 2015, Regehr et al. 2007, Lunn et al. 2016). The
attrition of summer Arctic sea-ice is expected to remain a primary
threat to polar bear populations (Amstrup et al. 2008, Stirling and
Derocher 2012), since projections indicate continued climate warming at
least through the end of this century (Atwood et al. 2016a, IPCC 2014)
(see section on Climate Change for further details).
In 2008, the Service listed polar bears as threatened under the
Endangered Species Act of 1973, as amended (16 U.S.C. 1531 et seq.;
ESA) due to the loss of sea-ice habitat caused by climate change (73 FR
28212, May 15, 2008). The Service later published a final rule under
section 4(d) of the ESA for the polar bear, which was vacated and then
reinstated when procedural requirements were satisfied (78 FR 11766,
February 20, 2013). This section 4(d) rule provides for measures that
are necessary and advisable for the conservation of polar bears.
Specifically, the 4(d) rule: (a) Adopts the conservation regulatory
requirements of the MMPA and the Convention on International Trade in
Endangered Species of Wild Fauna and Flora (CITES) for the polar bear
as the appropriate regulatory provisions, in most instances; (b)
provides that incidental, nonlethal take of polar bears resulting from
activities outside the bear's current range is not prohibited under the
ESA; (c) clarifies that the 4(d) rule does not alter the section 7
consultation requirements of the ESA; and (d) applies the standard ESA
protections for threatened species when an activity is not covered by
an MMPA or CITES authorization or exemption.
The Service designated critical habitat for polar bear populations
in the United States effective January 6, 2011 (75 FR 76086, December
7, 2010). The designation of critical habitat identifies geographic
areas that contain features that are essential for the conservation of
a threatened or endangered species and that may require special
management or protection. Under section 7 of the ESA, if there is a
Federal action, the Service will analyze the potential impacts of the
action upon polar bears and any designated critical habitat. Polar bear
critical habitat units include barrier island habitat, sea-ice habitat
(both described in geographic terms), and terrestrial denning habitat
(a functional determination). Barrier island habitat includes coastal
barrier islands and spits along Alaska's coast; it is used for denning,
refuge from human disturbance, access to maternal dens and feeding
habitat, and travel along the coast. Sea-ice habitat is located over
the continental shelf and includes water 300 m (~984 ft) or less in
depth. Terrestrial denning habitat includes lands within 32 km (~20 mi)
of the northern coast of Alaska between the Canadian border and the
Kavik River and within 8 km (~5 mi) between the Kavik River and
Utqia[gdot]vik. The total area designated under the ESA as critical
habitat covers approximately 484,734 km\2\ (~187,157 mi\2\) and is
entirely within the lands and waters of the United States. Polar bear
critical habitat is described in detail in the final rule that
designated polar bear critical habitat (75 FR 76086, December 7, 2010).
A digital copy of the final critical habitat rule is available at:
<a href="http://www.fws.gov/r7/fisheries/mmm/polarbear/pdf/federal_register_notice.pdf">http://www.fws.gov/r7/fisheries/mmm/polarbear/pdf/federal_register_notice.pdf</a>.
Stock Size and Range
In Alaska, polar bears have historically been observed as far south
in the Bering Sea as St. Matthew Island and the Pribilof Islands (Ray
1971). A detailed description of the SBS polar bear stock can be found
in the Service's revised Polar Bear (Ursus maritimus) Stock Assessment
Report (86 FR 33337, June 24, 2021). Digital copies of these Stock
Assessment Report is are available at: <a href="https://www.fws.gov/alaska/sites/default/files/2021-06/Southern%20Beaufort%20Sea%20SAR%20Final_May%2019rev.pdf">https://www.fws.gov/alaska/sites/default/files/2021-06/Southern%20Beaufort%20Sea%20SAR%20Final_May%2019rev.pdf</a>. and <a href="https://www.fws.gov/alaska/sites/default/files/2021-06/Chukchi_Bering%20Sea%20SAR%20Final%20May%2019%20rev.pdf">https://www.fws.gov/alaska/sites/default/files/2021-06/Chukchi_Bering%20Sea%20SAR%20Final%20May%2019%20rev.pdf</a>.
Southern Beaufort Sea Stock
The SBS polar bear stock is shared between Canada and Alaska.
Radio-telemetry data, combined with ear tag returns from harvested
bears, suggest that the SBS stock occupies a region with a western
boundary near Icy Cape, Alaska (Scharf et al. 2019), and an eastern
boundary near Tuktoyaktuk, Northwest Territories, Canada (Durner et al.
2018).
The most recent population estimates for the Alaska SBS stock were
produced by the U.S. Geological Survey (USGS) in 2020 (Atwood et al.
2020) and are based on mark-recapture and collared bear data collected
from the SBS stock from 2001 to 2016. The SBS stock declined from 2003
to 2006 (this was also reported by Bromaghin et al. 2015) but
stabilized from 2006 through 2015. The stock may have increased in size
from 2009 to 2012; however, low survival in 2013 appears to have offset
those gains. Atwood et al. (2020) provide estimates for the portion of
the SBS stock only within the State of Alaska; however, their updated
abundance estimate from 2015 is consistent with the estimate from
Bromaghin et al. (2015) for 2010. Thus, the number of bears in the SBS
stock is thought to have remained constant since the Bromaghin et al.
(2015) estimate of 907 bears. This number is also supported by survival
rate estimates provided by Atwood et al. (2020) that were relatively
high in 2001-2003, decreased during 2004-2008, then improved in 2009,
and remained high until 2015, except for much lower rates in 2012.
Pacific Walrus
Pacific walruses constitute a single panmictic population (Beatty
et al. 2020) primarily inhabiting the shallow continental shelf waters
of the Bering and Chukchi Seas where their distribution is largely
influenced by the extent of the seasonal pack ice and prey densities
(Lingqvist et al. 2009; Berta and Churchill 2012; USFWS 2017). From
April to June, most of the population migrates from the Bering Sea
through the Bering Strait and into the Chukchi Sea along lead systems
that develop in the sea-ice and that are closely associated with the
edge of the seasonal pack ice during the open-water season (Truhkin and
Simokon 2018). By July, tens of thousands of animals can be found along
the edge of the pack ice from Russian waters to areas west of Point
Barrow, Alaska (Fay 1982; Gilbert et al. 1992; Belikov et al. 1996;
USFWS 2017). The pack ice has historically advanced rapidly southward
in late fall, and most walruses return to the Bering Sea by mid- to
late-November. During the winter breeding season, walruses are found in
three concentration areas in the Bering Sea where open leads, polynyas,
or thin ice occur (Fay 1982; Fay et al. 1984, Garlich-Miller et al.
2011a; Duffy-Anderson et al. 2019). While the specific location of
these groups varies annually and seasonally depending upon the extent
of the sea-ice, generally one group occurs near the Gulf of Anadyr,
another south of St. Lawrence Island, and a third in the southeastern
Bering Sea south of Nunivak Island into northwestern Bristol Bay (Fay
1982; Mymrin et al. 1990; Garlich-Miller et al. 2011 USFWS 2017).
Although most walruses remain either in the Chukchi (for adult
females and dependent young) or Bering (for adult males) Seas
throughout the summer
[[Page 43004]]
months, a few occasionally range into the Beaufort Sea in late summer
(Mymrin et al. 1990; Garlich-Miller and Jay 2000; USFWS 2017). Industry
monitoring reports have observed no more than 38 walruses in the
Beaufort Sea ITR geographic region between 1995 and 2015, with only a
few instances of disturbance to those walruses (AES Alaska 2015,
Kalxdorff and Bridges 2003, USFWS unpubl. data). The USGS and the
Alaska Department of Fish and Game (ADF&G) have fitted between 30-60
walruses with satellite transmitters each year during spring and summer
since 2008 and 2013 respectively. In 2014, a female tagged by ADF&G
spent about 3 weeks in Harrison Bay, Beaufort Sea (ADF&G 2014). The
USGS tracking data indicates that at least one tagged walrus ventured
into the Beaufort Sea for brief periods in all years except 2011. Most
of these movements extend northeast of Utqiagvik to the continental
shelf edge north of Smith Bay (USGS 2015). All available information
indicates that few walruses currently enter the Beaufort Sea and those
that do, spend little time there. The Service and USGS are conducting
multiyear studies on the walrus population to investigate movements and
habitat use patterns, as it is possible that as sea-ice diminishes in
the Chukchi Sea beyond the 5-year period of this rule, walrus
distribution and habitat use may change.
Walruses are generally found in waters of 100 m (328 ft) or less
where they utilize sea-ice for passive transportation and rest over
feeding areas, avoid predators, and birth and nurse their young (Fay
1982; Ray et al. 2006; Rosen 2020). The diet of walruses consists
primarily of benthic invertebrates, most notably mollusks (Class
Bivalvia) and marine worms (Class Polychaeta) (Fay 1982; Fay 1985;
Bowen and Siniff 1999; Born et al. 2003; Dehn et al. 2007; Sheffield
and Grebmeier 2009; Maniscalco et al. 2020). When foraging, walruses
are capable of diving to great depths with most dives lasting between 5
and 10 minutes with a 1-2-minute surface interval (Fay 1982; Bowen and
Siniff 1999; Born et al. 2003; Dehn et al. 2007; Sheffield and
Grebmeier 2009). The foraging activity of walruses is thought to have a
significant influence on the ecology of the Bering and Chukchi Seas by
disturbing the sea floor, thereby releasing nutrients into the water
column that provide food for scavenger organisms and contributing to
the diversity of the benthic community (Oliver et al. 1983; Klaus et
al. 1990; Ray et al. 2006). In addition to feeding on benthic
invertebrates, native hunters have also reported incidences of walruses
preying on seals, fish, and other vertebrates (Fay 1982; Sheffield and
Grebmeier 2009; Seymour et al. 2014).
Walruses are social and gregarious animals that often travel and
haul-out onto ice or land in groups where they spend approximately 20-
30 percent of their time out of the water (Gilbert 1999; Kastelien
2002; Jefferson et al. 2008; Monson et al. 2013; USFWS 2017). Hauled-
out walruses tend to be in close physical contact, with groups ranging
from a few animals up to tens of thousands of individuals--the largest
aggregations occurring at land haul-outs (Gilbert 1999; Monson et al.
2013; MacCracken 2017). In recent years, the barrier islands north of
Point Lay, Alaska, have held large aggregations of walruses (20,000-
40,000) in late summer and fall (Monson et al. 2013; USFWS 2017).
The size of the walrus population has never been known with
certainty. Based on large sustained harvests in the 18th and 19th
centuries, Fay (1957) speculated that the pre-exploitation population
was represented by a minimum of 200,000 animals. Since that time,
population size following European contact fluctuated markedly in
response to varying levels of human exploitation. Large-scale
commercial harvests are thought to have reduced the population to
50,000-100,000 animals in the mid-1950s (Fay et al. 1989). Following
the implementation of harvest regulations in the 1960s and 1970s, which
limited the take of females, the population increased rapidly and
likely reached or exceeded the food-based carrying capacity of the
region by 1980 (Fay et al. 1989, Fay et al. 1997, Garlich-Miller et al.
2006, MacCracken et al. 2014).
Between 1975 and 1990, aerial surveys conducted jointly by the
United States and Russia at 5-year intervals produced population
estimates ranging from about 200,000 to 255,000 individuals with large
confidence intervals (Fay 1957; Fay 1982; Speckman et al. 2011).
Efforts to survey the walrus population were suspended by both
countries after 1990 following problems with survey methods that
severely limited their utility. In 2006, the United States and Russia
conducted another joint aerial survey in the pack ice of the Bering Sea
using thermal imaging systems to more accurately count walruses hauled
out on sea-ice and applied satellite transmitters to account for
walruses in the water (Speckman et al. 2011). In 2013, the Service
began a genetic mark-recapture study to estimate population size. An
initial analysis of data in the period 2013-2015 led to the most recent
estimate of 283,213 Pacific walruses with a 95% confidence interval of
93,000 to 478,975 individuals (Beatty 2017). Although this is the most
recent estimate of Pacific walrus population size, it should be used
with caution as it is preliminary.
Taylor and Udevitz (2015) used data from five aerial surveys and
with ship-based age and sex composition counts that occurred in 1981-
1984, 1998, and 1999 (Citta et al. 2014) in a Bayesian integrated
population model to estimate population trends and vital rates in the
period 1975-2006. They recalculated the 1975-1990 aerial survey
estimates based on a lognormal distribution for inclusion in their
model. Their results generally agreed with the large-scale population
trends identified by Citta et al. (2014) but with slightly different
population estimates in some years along with more precise confidence
intervals. Ultimately, Taylor and Udevitz (2015) concluded (i) that
though their model provides improved clarity on past walrus population
trends and vital rates, it cannot overcome the large uncertainties in
the available population size data, and (ii) that the absolute size of
the Pacific walrus population will continue to be speculative until
accurate empirical estimation of the population size becomes feasible.
A detailed description of the Pacific walrus stock can be found in
the Pacific Walrus (Odobenus rosmarus divergens) Species Status
Assessment (USFWS 2017). A digital copy of the Species Status
Assessment is available at: <a href="https://ecos.fws.gov/ServCat/DownloadFile/132114?Reference=86869">https://ecos.fws.gov/ServCat/DownloadFile/132114?Reference=86869</a>.
Polar bears are known to prey on walruses, particularly calves, and
killer whales (Orcinus orca) have been known to take all age classes of
walruses (Frost et al. 1992, Melnikov and Zagrebin 2005; Rode et al.
2014; Truhkin and Simokon 2018). Predation rates are unknown but are
thought to be highest near terrestrial haulout sites where large
aggregations of walruses can be found; however, few observations exist
of predation upon walruses further offshore.
Walruses have been hunted by coastal Alaska Natives and native
people of the Chukotka, Russian Federation, for thousands of years (Fay
et al. 1989). Exploitation of the walrus population by Europeans has
also occurred in varying degrees since the arrival of exploratory
expeditions (Fay et al. 1989). Commercial harvest of walruses ceased in
the United States in 1941, and sport
[[Page 43005]]
hunting ceased in 1972 with the passage of the MMPA and ceased in 1990
in Russia. Presently, walrus hunting in Alaska is restricted to
subsistence use by Alaska Natives. Harvest mortality during 2000-2018
for both the United States and Russian Federation averaged 3,207 (SE =
194) walruses per year. This mortality estimate includes corrections
for under-reported harvest and struck and lost animals. Harvests have
been declining by about 3 percent per year since 2000 and were
exceptionally low in the United States in 2012-2014. Resource managers
in Russia have concluded that the population has declined and have
reduced harvest quotas in recent years accordingly (Kochnev 2004;
Kochnev 2005; Kochnev 2010; pers. comm.; Litovka 2015, pers. comm.)
based in part on the lower abundance estimate generated from the 2006
survey. Total harvest quotas in Russia were further decreased in 2020
to 1,088 walruses (Ministry of Agriculture of the Russian Federation
Order of March 23, 2020). Intra-specific trauma at coastal haulouts is
also a known source of injury and mortality (Garlich-Miller et al.
2011). The risk of stampede-related injuries increases with the number
of animals hauled out and with the duration spent on coastal haulouts,
with calves and young being the most vulnerable to suffer injuries and/
or mortality (USFWS 2017). However, management and protection programs
in both the United States and the Russian Federation have been somewhat
successful in reducing disturbances and large mortality events at
coastal haulouts (USFWS 2015).
Climate Change
Global climate change will impact the future of both Pacific walrus
and polar bear populations. As atmospheric greenhouse gas
concentrations increase so will global temperatures (Pierrehumbert
2011; IPCC 2014) with substantial implications for the Arctic
environment and its inhabitants (Bellard et al. 2012, Scheffers et al.
2016, Harwood et al. 2001, Nunez et al. 2019). The Arctic has warmed at
twice the global rate (IPCC 2014), and long-term data sets show that
substantial reductions in both the extent and thickness of Arctic sea-
ice cover have occurred over the past 40 years (Meier et al. 2014, Frey
et al. 2015). Stroeve et al. (2012) estimated that, since 1979, the
minimum area of fall Arctic sea-ice declined by over 12 percent per
decade through 2010. Record low minimum areas of fall Arctic sea-ice
extent were recorded in 2002, 2005, 2007, and 2012. Further,
observations of sea-ice in the Beaufort Sea have shown a trend since
2004 of sea-ice break-up earlier in the year, re-formation of sea-ice
later in the year, and a greater proportion of first-year ice in the
ice cover (Galley et al. 2016). The overall trend of decline of Arctic
sea-ice is expected to continue for the foreseeable future (Stroeve et
al. 2007; Amstrup et al. 2008; Hunter et al. 2010; Overland and Wang
2013; 73 FR 28212, May 15, 2008; IPCC 2014). Decline in Arctic sea ice
affects Arctic species through habitat loss and altered trophic
interactions. These factors may contribute to population distribution
changes, population mixing, and pathogen transmission (Post et al.
2013), which further impact population health.
For polar bears, sea-ice habitat loss due to climate change has
been identified as the primary cause of conservation concern (e.g.,
Stirling and Derocher 2012, Atwood et al. 2016b, USFWS 2016). A 42
percent loss of optimal summer polar bear habitat throughout the Arctic
is projected for the decade of 2045-2054 (Durner et al. 2009). A recent
global assessment of the vulnerability of the 19 polar bear stocks to
future climate warming ranked the SBS as one of the three most
vulnerable stocks (Hamilton and Derocher 2019). The study, which
examined factors such as the size of the stock, continental shelf area,
ice conditions, and prey diversity, attributed the high vulnerability
of the SBS stock primarily to deterioration of ice conditions. The SBS
polar bear stock occurs within the Polar Basin Divergent Ecoregion
(PBDE), which is characterized by extensive sea-ice formation during
the winters and the sea ice melting and pulling away from the coast
during the summers (Amstrup et al. 2008). Projections show that polar
bear stocks within the PBDE may be extirpated within the next 45-75
years at current rates of sea-ice declines (Amstrup et al. 2007,
Amstrup et al. 2008). Atwood et al. (2016) also predicted that polar
bear stocks within the PBDE will be more likely to greatly decrease in
abundance and distribution as early as the 2020-2030 decade primarily
as a result of sea-ice habitat loss.
Sea-ice habitat loss affects the distribution and habitat use
patterns of the SBS polar bear stock. When sea ice melts during the
summer, polar bears in the PBDE may either stay on land throughout the
summer or move with the sea ice as it recedes northward (Durner et al.
2009). The SBS stock, and to a lesser extent the Chukchi Sea stock, are
increasingly utilizing marginal habitat (i.e., land and ice over less
productive waters) (Ware et al. 2017). Polar bear use of Beaufort Sea
coastal areas has increased during the fall open-water period (June
through October). Specifically, the percentage of radio-collared adult
females from the SBS stock utilizing terrestrial habitats has tripled
over 15 years, and SBS polar bears arrive onshore earlier, stay longer,
and leave to the sea ice later (Atwood et al. 2016b). This change in
polar bear distribution and habitat use has been correlated with
diminished sea ice and the increased distance of the pack ice from the
coast during the open-water period (i.e., the less sea ice and the
farther from shore the leading edge of the pack ice is, the more bears
are observed onshore) (Schliebe et al. 2006; Atwood et al. 2016b).
The current trend for sea-ice in the SBS region will result in
increased distances between the ice edge and land, likely resulting in
more bears coming ashore during the open-water period (Schliebe et al.
2008). More polar bears on land for a longer period of time may
increase both the frequency and the magnitude of polar bear exposure to
human activities, including an increase in human-bear interactions
(Towns et al. 2009, Schliebe et al. 2008, Atwood et al. 2016b). Polar
bears spending more time in terrestrial habitats also increases their
risk of exposure to novel pathogens that are expanding north as a
result of a warmer Arctic (Atwood et al. 2016b, 2017). Heightened
immune system activity and more infections (indicated by elevated
number of white blood cells) have been reported for the SBS polar bears
that summer on land when compared to those on sea ice (Atwood et al.
2017; Whiteman et al. 2019). The elevation in immune system activity
represents additional energetic costs that could ultimately impact
stock and individual fitness (Atwood et al. 2017; Whiteman et al.
2019). Prevalence of parasites such as the nematode Trichinella nativa
in many Arctic species, including polar bears, pre-dates the recent
global warming. However, parasite prevalence could increase as a result
of changes in diet (e.g., increased reliance on conspecific scavenging)
and feeding habits (e.g., increased consumption of seal muscle)
associated with climate-induced reduction of hunting opportunities for
polar bears (Penk et al. 2020, Wilson et al. 2017).
The continued decline in sea-ice is also projected to reduce
connectivity among polar bear stocks and potentially lead to the
impoverishment of genetic diversity that is key to maintaining viable,
resilient wildlife populations (Derocher et al. 2004, Cherry et al.
2013, Kutchera et al. 2016). The circumpolar polar bear population has
been divided into six genetic clusters: The Western Polar Basin (which
includes the SBS
[[Page 43006]]
and CS stocks), the Eastern Polar Basin, the Western and Eastern
Canadian Archipelago, and Norwegian Bay (Malenfant et al. 2016). There
is moderate genetic structure among these clusters, suggesting polar
bears broadly remain in the same cluster when breeding. While there is
currently no evidence for strong directional gene flow among the
clusters (Malenfant et al. 2016), migrants are not uncommon and can
contribute to gene flow across clusters (Kutschera et al. 2016).
Changing sea-ice conditions will make these cross-cluster migrations
(and the resulting gene flow) more difficult in the future (Kutschera
et al. 2016).
Additionally, habitat loss from decreased sea-ice extent may impact
polar bear reproductive success by reducing or altering suitable
denning habitat and extending the polar bear fasting season (Rode et
al. 2018, Stirling and Derocher 2012, Moln[aacute]r et al. 2020). In
the early 1990s, approximately 50 percent of the annual maternal dens
of the SBS polar bear stock occurred on land (Amstrup and Gardner
1994). Along the Alaskan region the proportion of terrestrial dens
increased from 34.4 percent in 1985-1995 to 55.2 percent in 2007-2013
(Olson et al. 2017). Polar bears require a stable substrate for
denning. As sea-ice conditions deteriorate and become less stable, sea-
ice dens can become vulnerable to erosion from storm surges (Fischbach
et al. 2007). Under favorable autumn snowfall conditions, SBS females
denning on land had higher reproductive success than SBS females
denning on sea-ice. Factors that may influence the higher reproductive
success of females with land-based dens include longer denning periods
that allow cubs more time to develop, higher snowfall conditions that
strengthen den integrity throughout the denning period (Rode et al.
2018), and increased foraging opportunities on land (e.g., scavenging
on Bowhead whale carcasses) (Atwood et al. 2016b). While SBS polar bear
females denning on land may experience increased reproductive success,
at least under favorable snowfall conditions, it is possible that
competition for suitable denning habitat on land may increase due to
sea-ice decline (Fischbach et al. 2007) and land-based dens may be more
vulnerable to disturbance from human activities (Linnell et al. 2000).
Polar bear reproductive success may also be impacted by declines in
sea ice through an extended fasting season (Moln[aacute]r et al. 2020).
By 2100, recruitment is predicted to become jeopardized in nearly all
polar bear stocks if greenhouse gas emissions remain uncurbed (RCP8.5
[Representative Concentration Pathway 8.5] scenario) as fasting
thresholds are increasingly exceeded due to declines in sea-ice across
the Arctic circumpolar range (Moln[aacute]r et al. 2020). As the
fasting season increases, most of these 12 stocks, including in the
SBS, are expected to first experience significant adverse effects on
cub recruitment followed by effects on adult male survival and lastly
on adult female survival (Moln[aacute]r et al. 2020). Without
mitigation of greenhouse gas emissions and assuming optimistic polar
bear responses (e.g., reduced movement to conserve energy), cub
recruitment in the SBS stock has possibly been already adversely
impacted since the late 1980s, while detrimental impacts on male and
female survival are forecasted to possibly occur in the late 2030s and
2040s, respectively.
Extended fasting seasons are associated with poor body condition
(Stirling and Derocher 2012), and a female's body condition at den
entry is a critical factor that determines whether the female will
produce cubs and the cubs' chance of survival during their first year
(Rode et al. 2018). Additionally, extended fasting seasons will cause
polar bears to depend more heavily on their lipid reserves for energy,
which can release lipid-soluble contaminants, such as persistent
organic pollutants and mercury, into the bloodstream and organ tissues.
The increased levels of contaminants in the blood and tissues can
affect polar bear health and body condition, which has implications for
reproductive success and survival (Jenssen et al. 2015).
Changes in sea-ice can impact polar bears by altering trophic
interactions. Differences in sea-ice dynamics, such as the timing of
ice formation and breakup, as well as changes in sea-ice type and
concentration, may impact the distribution of polar bears and/or their
prey's occurrence and reduce polar bears' access to prey. A climate-
induced reduction in overlap between female polar bears and ringed
seals was detected after a sudden sea-ice decline in Norway that
limited the ability of females to hunt on sea-ice (Hamilton et al.
2017). While polar bears are opportunistic and hunt other species,
their reliance on ringed seals is prevalent across their range
(Thiemann et al. 2007, 2008; Florko et al. 2020; Rode et al. 2021).
Male and female polar bears exhibit differences in prey consumption.
Females typically consume more ringed seals compared to males, which is
likely related to more limited hunting opportunities for females (e.g.,
prey size constraints) (McKinney et al. 2017, Bourque et al. 2020).
Female body condition has been positively correlated with consumption
of ringed seals, but negatively correlated with the consumption of
bearded seals (Florko et al. 2020). Consequently, females are more
prone to decreased foraging and reproductive success than males during
years in which unfavorable sea-ice conditions limit polar bears' access
to ringed seals (Florko et al. 2020).
In the SBS stock, adult female and juvenile polar bear consumption
of ringed seals was negatively correlated with winter Arctic
oscillation, which affects sea-ice conditions. This trend was not
observed for male polar bears. Instead, male polar bears consumed more
bowhead whale as a result of scavenging the carcasses of subsistence-
harvested bowhead whales during years with a longer ice-free period
over the continental shelf. It is possible that these alterations in
sea-ice conditions may limit female polar bears' access to ringed
seals, and male polar bears may rely more heavily on alternative
onshore food resources in the southern Beaufort Sea region (McKinney et
al. 2017). Changes in the availability and distribution of seals may
influence polar bear foraging efficiency. Reduction in sea ice is
expected to render polar bear foraging energetically more demanding, as
moving through fragmented sea ice and open-water swimming require more
energy than walking across consolidated sea ice (Cherry et al. 2009,
Pagano et al. 2012, Rode et al. 2014, Durner et al. 2017). Inefficient
foraging can contribute to nutritional stress and poor body condition,
which can have implications for reproductive success and survival
(Regehr et al. 2010).
The decline in Arctic sea ice is associated with the SBS polar bear
stock spending more time in terrestrial habitats (Schliebe et al.
2008). Recent changes in female denning habitat and extended fasting
seasons as a result of sea-ice decline may affect the reproductive
success of the SBS polar bear stock (Rode et al. 2018; Stirling and
Derocher 2012; Moln[aacute]r et al. 2020). Other relevant factors that
could negatively affect the SBS polar bear stock include changes in
prey availability, reduced genetic diversity through limited population
connectivity and/or hybridization with other bear species, increased
exposure to disease and parasite prevalence and/or dissemination,
impacts of human activities (oil and gas exploration/extraction,
shipping, harvesting, etc.) and pollution (Post et al. 2013; Hamilton
and Derocher 2019). Based on the projections of sea-ice decline in the
[[Page 43007]]
Beaufort Sea region and demonstrated impacts on SBS polar bear
utilization of sea-ice and terrestrial habitats, the Service
anticipates that polar bear use of the Beaufort Sea coast will continue
to increase during the open-water season.
For walruses, climate change may affect habitat and prey
availability. The loss of Arctic sea ice has affected walrus
distribution and habitat use in the Bering and Chukchi Seas (Jay et al.
2012). Walruses use sea ice as a breeding site, a location to birth and
nurse young, and a protective cover from storms and predation; however,
if the sea ice retreats north of the continental shelf break in the
Chukchi Sea, walruses can no longer use it for these purposes. Thus,
loss of sea ice is associated with increased use of coastal haul-outs
during the summer, fall, and early winter (Jay et al. 2012). Coastal
haulouts are potentially dangerous for walruses, as they can stampede
toward the water when disturbed, resulting in injuries and mortalities
(Garlich-Miller et al. 2011). Use of land haulouts is also more
energetically costly, with walruses hauled out on land spending more
time in water but not foraging than those hauled out on sea ice. This
difference has been attributed to an increase in travel time in the
water from land haulouts to foraging areas (Jay et al. 2017). Higher
walrus abundance at these coastal haulouts may also increase exposure
to environmentally and density-dependent pathogens (Post et al. 2013).
Climate change impacts through habitat loss and changes in prey
availability could affect walrus population stability. It is unknown if
walruses will utilize the Beaufort Sea more heavily in the future due
to climate change effects; however, considering the low number of
walruses observed in the Beaufort Sea (see Take Estimates for Pacific
Walruses and Polar Bears), it appears that walruses will remain
uncommon in the Beaufort Sea for the next 5 years.
Potential Effects of the Specified Activities on Subsistence Uses
Polar Bear
Based on subsistence harvest reports, polar bear hunting is less
prevalent in communities on the north coast of Alaska than it is in
west coast communities. There are no quotas under the MMPA for Alaska
Native polar bear harvest in the Southern Beaufort Sea; however, there
is a Native-to-Native agreement between the Inuvialuit in Canada and
the Inupiat in Alaska. This agreement, the Inuvialuit-Inupiat Polar
Bear Management Agreement, established quotas and recommendations
concerning protection of denning females, family groups, and methods of
take. Although this Agreement is voluntary in the United States and
does not have the force of law, legally enforceable quotas are
administered in Canada. In Canada, users are subject to provincial
regulations consistent with the Agreement. Commissioners for the
Agreement set the original quota at 76 bears in 1988, split evenly
between the Inuvialuit in Canada and the Inupiat in the United States.
In July 2010, the quota was reduced to 70 bears per year. Subsequently,
in Canada, the boundary of the SBS stock with the neighboring Northern
Beaufort Sea stock was adjusted through polar bear management bylaws in
the Inuvialuit Settlement Region in 2013, affecting Canadian quotas and
harvest levels from the SBS stock. The current subsistence harvest
established under the Agreement of 56 bears total (35 in the United
States and 21 in Canada) reflect this change.
The Alaska Native subsistence harvest of polar bears from the SBS
population has declined. From 1990 to 1999, an average of 42 bears were
taken annually. The average subsistence harvest decreased to 21 bears
annually in the period 2000-2010 and 11 bears annually during 2015-
2020. The reason for the decline of harvested polar bears from the SBS
population is unknown. Alaska Native subsistence hunters and harvest
reports have not indicated a lack of opportunity to hunt polar bears or
disruption by Industry activity.
Pacific Walrus
Few walruses are harvested in the Beaufort Sea along the northern
coast of Alaska since their primary range is in the Bering and Chukchi
Seas. Walruses constitute a small portion of the total marine mammal
harvest for the village of Utqiagvik. Hunters from Utqiagvik have
harvested 407 walruses since the year 2000 with 65 harvested since
2015. Walrus harvest from Nuiqsut and Kaktovik is opportunistic. They
have reported taking four walruses since 1993. None of the walrus
harvests for Utqiagvik, Nuiqsut, or Kaktovik from 2014 to 2020 occurred
within the Beaufort Sea ITR region.
Evaluation of Effects of the Specified Activities on Subsistence Uses
There are three primary Alaska Native communities on the Beaufort
Sea whose residents rely on Pacific walruses and polar bears for
subsistence use: Utqiagvik, Nuiqsut, and Kaktovik. Utqiagvik and
Kaktovik are expected to be less affected by the Industry's proposed
activities than Nuiqsut. Nuiqsut is located within 5 mi of
ConocoPhillips' Alpine production field to the north and
ConocoPhillips' Alpine Satellite development field to the west.
However, Nuiqsut hunters typically harvest polar bears from Cross
Island during the annual fall bowhead whaling. Cross Island is
approximately 16 km (~10 mi) offshore from the coast of Prudhoe Bay. We
have received no evidence or reports that bears are altering their
habitat use patterns, avoiding certain areas, or being affected in
other ways by the existing level of oil and gas activity near
communities or traditional hunting areas that would diminish their
availability for subsistence use. However, as is discussed in
Evaluation of Effects of Specified Activities on Pacific Walruses,
Polar Bears, and Prey Species below, the Service has found some
evidence of fewer maternal polar bear dens near industrial
infrastructure than expected.
Changes in Industry activity locations may trigger community
concerns regarding the effect on subsistence uses. Industry must remain
proactive to address potential impacts on the subsistence uses by
affected communities through consultations and, where warranted, POCs.
Evidence of communication with the public about activities will be
required as part of an LOA. Current methods of communication are
variable and include venues such as public forums, which allow
communities to express feedback prior to the initiation of operations,
the employ of subsistence liaisons, and presentations to regional
commissions. If community subsistence use concerns arise from new
activities, appropriate mitigation measures, such as cessation of
activities in key locations during hunting seasons, are available and
will be applied as a part of the POC.
No unmitigable concerns from the potentially affected communities
regarding the availability of walruses or polar bears for subsistence
uses have been identified through Industry consultations with the
potentially affected communities of Utqiagvik, Kaktovik, or Nuiqsut.
During the 2016-2021 ITR period, Industry groups have communicated with
Native communities and subsistence hunters through subsistence
representatives, community liaisons, and village outreach teams as well
as participation in community and commission meetings. Based on
information gathered from these sources, it appears that subsistence
hunting opportunities for walruses and polar bears have not been
affected by past Industry activities conducted pursuant to the 2016-
2021
[[Page 43008]]
Beaufort ITR and are not likely to be affected by the activities
described in this ITR. Given the similarity between the nature and
extent of Industry activities covered by the prior Beaufort Sea ITR and
those specified in AOGA's pending Request, and the continued
requirement for Industry to consult and coordinate with Alaska Native
communities and representative subsistence hunting and co-management
organizations (and develop a POC if necessary), we do not anticipate
that the activities specified in AOGA's pending Request will have any
unmitigable effects on the availability of Pacific walruses or polar
bears for subsistence uses.
Potential Effects of the Specified Activities on Pacific Walruses,
Polar Bears, and Prey Species
Industry activities can affect individual walruses and polar bears
in numerous ways. Below, we provide a summary of the documented and
potential effects of oil and gas industrial activities on both polar
bears and walruses. The effects analyzed included harassment, lethal
take, and exposure to oil spills.
Polar Bear: Human-Polar Bear Encounters
Oil and gas industry activities may affect individual polar bears
in numerous ways during the open-water and ice-covered seasons. Polar
bears are typically distributed in offshore areas associated with
multiyear pack ice from mid-November to mid-July. From mid-July to mid-
November, polar bears can be found in large numbers and high densities
on barrier islands, along the coastline, and in the nearshore waters of
the Beaufort Sea, particularly on and around Barter and Cross Islands.
This distribution leads to a significantly higher number of human-polar
bear encounters on land and at offshore structures during the open-
water period than other times of the year. Bears that remain on the
multiyear pack ice are not typically present in the ice-free areas
where vessel traffic occurs, as barges and vessels associated with
Industry activities travel in open water and avoid large ice floes.
On land, the majority of Industry's bear observations occur within
2 km (1.2 mi) of the coastline. Industry facilities within the offshore
and coastal areas are more likely to be approached by polar bears and
may act as physical barriers to movements of polar bears. As bears
encounter these facilities, the chances for human-bear interactions
increase. The Endicott and West Dock causeways, as well as the
facilities supporting them, have the potential to act as barriers to
movements of polar bears because they extend continuously from the
coastline to the offshore facility. However, polar bears have
frequently been observed crossing existing roads and causeways.
Offshore production facilities, such as Northstar, Spy Island, and
Oooguruk, have frequently been approached by polar bears but appear to
present only an inconsequential small-scale, local obstruction to the
bears' movement. Of greater concern is the increased potential for
human-polar bear interaction at these facilities. Encounters are more
likely to occur during the fall at facilities on or near the coast.
Polar bear interaction plans, training, and monitoring required by past
ITRs have proven effective at reducing human-polar bear encounters and
the risks to bears and humans when encounters occur. Polar bear
interaction plans detail the policies and procedures that Industry
facilities and personnel will implement to avoid attracting and
interacting with polar bears as well as minimizing impacts to the
bears. Interaction plans also detail how to respond to the presence of
polar bears, the chain of command and communication, and required
training for personnel. Industry uses technology to aid in detecting
polar bears including bear monitors, closed-circuit television, video
cameras, thermal cameras, radar devices, and motion-detection systems.
In addition, some companies take steps to actively prevent bears from
accessing facilities by using safety gates and fences.
The noises, sights, and smells produced by the proposed project
activities could disturb and elicit variable responses from polar
bears. Noise disturbance can originate from either stationary or mobile
sources. Stationary sources include construction, maintenance, repair
and remediation activities, operations at production facilities, gas
flaring, and drilling operations. Mobile sources include aircraft
traffic, geotechnical surveys, ice road construction, vehicle traffic,
tracked vehicles, and snowmobiles.
The potential behavioral reaction of polar bears to the proposed
activities can vary by activity type. Camp odors may attract polar
bears, potentially resulting in human-bear encounters, intentional
hazing, or possible lethal take in defense of human life (see 50 CFR
18.34 for further guidance on passive polar bear deterrence measures).
Noise generated on the ground by industrial activity may cause a
behavioral (e.g., escape response) or physiologic (e.g., increased
heart rate, hormonal response) (Harms et al. 1997; Tempel and Gutierrez
2003) response. The available studies of polar bear behavior indicate
that the intensity of polar bear reaction to noise disturbance may be
based on previous interactions, sex, age, and maternal status (Anderson
and Aars 2008; Dyck and Baydack 2004).
Polar Bear: Effects of Aircraft Overflights
Bears on the surface experience increased noise and visual stimuli
when planes or helicopters fly above them, both of which may elicit a
biologically significant behavioral response. Sound frequencies
produced by aircraft will likely fall within the hearing range of polar
bears (see Nachtigall et al. 2007) and will thus be audible to animals
during flyovers or when operating in proximity to polar bears. Polar
bears likely have acute hearing with previous sensitivities
demonstrated between 1.4-22.5 kHz (tests were limited to 22.5 kHz;
Nachtigall et al. 2007). This range, which is wider than that seen in
humans, supports the idea that polar bears may experience temporary
(called temporary threshold shift, or TTS) or permanent (called
permanent threshold shift, or PTS) hearing impairment if they are
exposed to high-ene
[…truncated; see source link]Indexed from Federal Register on August 5, 2021.
This is legal information, not legal advice. Laws vary by jurisdiction and change frequently. Always verify current law with official sources and consult a licensed attorney in your jurisdiction for advice on your specific situation.