Notice2022-15310
Taking and Importing Marine Mammals; Taking Marine Mammals Incidental to Geophysical Surveys Related to Oil and Gas Activities in the Gulf of Mexico
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
July 19, 2022
Effective
September 1, 2022
Issuing agencies
Commerce DepartmentNational Oceanic and Atmospheric Administration
Abstract
In accordance with the Marine Mammal Protection Act (MMPA), as amended, its implementing regulations, and NMFS' MMPA Regulations for Taking Marine Mammals Incidental to Geophysical Surveys Related to Oil and Gas Activities in the Gulf of Mexico, notification is hereby given that a Letter of Authorization (LOA) has been issued to CGG for the take of marine mammals incidental to geophysical survey activity in the Gulf of Mexico.
Full Text
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<title>Federal Register, Volume 87 Issue 137 (Tuesday, July 19, 2022)</title>
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[Federal Register Volume 87, Number 137 (Tuesday, July 19, 2022)]
[Notices]
[Pages 42999-43003]
From the Federal Register Online via the Government Publishing Office [<a href="http://www.gpo.gov">www.gpo.gov</a>]
[FR Doc No: 2022-15310]
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DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric Administration
[RTID 0648-XC157]
Taking and Importing Marine Mammals; Taking Marine Mammals
Incidental to Geophysical Surveys Related to Oil and Gas Activities in
the Gulf of Mexico
AGENCY: National Marine Fisheries Service (NMFS), National Oceanic and
Atmospheric Administration (NOAA), Commerce.
ACTION: Notice of issuance of Letter of Authorization.
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SUMMARY: In accordance with the Marine Mammal Protection Act (MMPA), as
amended, its implementing regulations, and NMFS' MMPA Regulations for
Taking Marine Mammals Incidental to Geophysical Surveys Related to Oil
and Gas Activities in the Gulf of Mexico, notification is hereby given
that a Letter
[[Page 43000]]
of Authorization (LOA) has been issued to CGG for the take of marine
mammals incidental to geophysical survey activity in the Gulf of
Mexico.
DATES: The LOA is effective from September 1, 2022, through April 30,
2023.
ADDRESSES: The LOA, LOA request, and supporting documentation are
available online at: <a href="http://www.fisheries.noaa.gov/action/incidental-take-authorization-oil-and-gas-industry-geophysical-survey-activity-gulf-mexico">www.fisheries.noaa.gov/action/incidental-take-authorization-oil-and-gas-industry-geophysical-survey-activity-gulf-mexico</a>. In case of problems accessing these documents, please call the
contact listed below (see FOR FURTHER INFORMATION CONTACT).
FOR FURTHER INFORMATION CONTACT: Ben Laws, Office of Protected
Resources, NMFS, (301) 427-8401.
SUPPLEMENTARY INFORMATION:
Background
Sections 101(a)(5)(A) and (D) of the MMPA (16 U.S.C. 1361 et seq.)
direct the Secretary of Commerce to allow, upon request, the
incidental, but not intentional, taking of small numbers of marine
mammals by U.S. citizens who engage in a specified activity (other than
commercial fishing) within a specified geographical region if certain
findings are made and either regulations are issued or, if the taking
is limited to harassment, a notice of a proposed authorization is
provided to the public for review.
An authorization for incidental takings shall be granted if NMFS
finds that the taking will have a negligible impact on the species or
stock(s), will not have an unmitigable adverse impact on the
availability of the species or stock(s) for subsistence uses (where
relevant), and if the permissible methods of taking and requirements
pertaining to the mitigation, monitoring and reporting of such takings
are set forth. NMFS has defined ``negligible impact'' in 50 CFR 216.103
as an impact resulting from the specified activity that cannot be
reasonably expected to, and is not reasonably likely to, adversely
affect the species or stock through effects on annual rates of
recruitment or survival.
Except with respect to certain activities not pertinent here, the
MMPA defines ``harassment'' as: any act of pursuit, torment, or
annoyance which (i) has the potential to injure a marine mammal or
marine mammal stock in the wild (Level A harassment); or (ii) has the
potential to disturb a marine mammal or marine mammal stock in the wild
by causing disruption of behavioral patterns, including, but not
limited to, migration, breathing, nursing, breeding, feeding, or
sheltering (Level B harassment).
On January 19, 2021, we issued a final rule with regulations to
govern the unintentional taking of marine mammals incidental to
geophysical survey activities conducted by oil and gas industry
operators, and those persons authorized to conduct activities on their
behalf (collectively ``industry operators''), in Federal waters of the
U.S. Gulf of Mexico (GOM) over the course of 5 years (86 FR 5322;
January 19, 2021). The rule was based on our findings that the total
taking from the specified activities over the 5-year period will have a
negligible impact on the affected species or stock(s) of marine mammals
and will not have an unmitigable adverse impact on the availability of
those species or stocks for subsistence uses. The rule became effective
on April 19, 2021.
Our regulations at 50 CFR 217.180 et seq. allow for the issuance of
LOAs to industry operators for the incidental take of marine mammals
during geophysical survey activities and prescribe the permissible
methods of taking and other means of effecting the least practicable
adverse impact on marine mammal species or stocks and their habitat
(often referred to as mitigation), as well as requirements pertaining
to the monitoring and reporting of such taking. Under 50 CFR
217.186(e), issuance of an LOA shall be based on a determination that
the level of taking will be consistent with the findings made for the
total taking allowable under these regulations and a determination that
the amount of take authorized under the LOA is of no more than small
numbers.
Summary of Request and Analysis
CGG plans to conduct a 3D ocean bottom node (OBN) survey of
approximately 144 lease blocks in the central GOM (Green Canyon and
Walker Ridge protraction areas), with approximate water depths ranging
from 100 to 2,500 meters (m). See Section F of the LOA application for
a map of the area.
CGG anticipates using two dual source vessels, towing airgun array
sources consisting of either 32 elements, with a total volume of 5,110
cubic inches (in\3\), or 28 elements, with total volume of 4,470 in\3\.
Please see CGG's application for additional detail.
Consistent with the preamble to the final rule, the survey effort
proposed by CGG in its LOA request was used to develop LOA-specific
take estimates based on the acoustic exposure modeling results
described in the preamble (86 FR 5322, 5398; January 19, 2021). In
order to generate the appropriate take number for authorization, the
following information was considered: (1) survey type; (2) location (by
modeling zone); \1\ (3) number of days; and (4) season.\2\ The acoustic
exposure modeling performed in support of the rule provides 24-hour
exposure estimates for each species, specific to each modeled survey
type in each zone and season.
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\1\ For purposes of acoustic exposure modeling, the GOM was
divided into seven zones. Zone 1 is not included in the geographic
scope of the rule.
\2\ For purposes of acoustic exposure modeling, seasons include
Winter (December-March) and Summer (April-November).
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No 3D OBN surveys were included in the modeled survey types, and
use of existing proxies (i.e., 2D, 3D NAZ, 3D WAZ, Coil) is generally
conservative for use in evaluation of 3D OBN survey effort, largely due
to the greater area covered by the modeled proxies. Summary
descriptions of these modeled survey geometries are available in the
preamble to the proposed rule (83 FR 29212, 29220; June 22, 2018). Coil
was selected as the best available proxy survey type in this case,
because the spatial coverage of the planned survey is most similar to
the coil survey pattern. The planned 3D OBN survey will involve two
source vessels sailing along survey lines approximately 65 km in
length. The coil survey pattern was assumed to cover approximately 144
kilometers squared (km\2\) per day (compared with approximately 795
km\2\, 199 km\2\, and 845 km\2\ per day for the 2D, 3D NAZ, and 3D WAZ
survey patterns, respectively). Among the different parameters of the
modeled survey patterns (e.g., area covered, line spacing, number of
sources, shot interval, total simulated pulses), NMFS considers area
covered per day to be most influential on daily modeled exposures
exceeding Level B harassment criteria. Although CGG is not proposing to
perform a survey using the coil geometry, its planned 3D OBN survey is
expected to cover approximately 100 km\2\ per day, meaning that the
coil proxy is most representative of the effort planned by CGG in terms
of predicted Level B harassment exposures.
In addition, all available acoustic exposure modeling results
assume use of a 72-element, 8,000 in\3\ array. Thus, estimated take
numbers for this LOA are considered conservative due to differences in
both the airgun array (maximum 32 elements, 5,110 in\3\) and the daily
survey area planned by CGG (100 km\2\), as compared to those modeled
for the rule.
The survey will take place over approximately 90 days, including 65
days of sound source operation. The
[[Page 43001]]
survey plan includes 20 days within Zone 2 and 45 days within Zone 5.
The seasonal distribution of survey days is not known in advance.
Therefore, the take estimates for each species are based on the season
that produces the greater value.
Additionally, for some species, take estimates based solely on the
modeling yielded results that are not realistically likely to occur
when considered in light of other relevant information available during
the rulemaking process regarding marine mammal occurrence in the GOM.
The approach used in the acoustic exposure modeling, in which seven
modeling zones were defined over the U.S. GOM, necessarily averages
fine-scale information about marine mammal distribution over the large
area of each modeling zone. This can result in unrealistic projections
regarding the likelihood of encountering particularly rare species and/
or species not expected to occur outside particular habitats. Thus,
although the modeling conducted for the rule is a natural starting
point for estimating take, our rule acknowledged that other information
could be considered (see, e.g., 86 FR 5322, 5442 (January 19, 2021),
discussing the need to provide flexibility and make efficient use of
previous public and agency review of other information and identifying
that additional public review is not necessary unless the model or
inputs used differ substantively from those that were previously
reviewed by NMFS and the public). For this survey, NMFS has other
relevant information reviewed during the rulemaking that indicates use
of the acoustic exposure modeling to generate a take estimate for
certain marine mammal species produces results that are inconsistent
with what is known regarding their occurrence in the GOM. Accordingly,
we have adjusted the calculated take estimates for those species as
described below.
Rice's whales (formerly known as GOM Bryde's whales) \3\ are mostly
found in a ``core habitat area'' located in the northeastern GOM in
waters between 100-400 m depth along the continental shelf break (Rosel
et al., 2016). (Note that this core habitat area is outside the scope
of the rule.) However, whaling records suggest that Rice's whales
historically had a broader distribution within similar habitat
parameters throughout the GOM (Reeves et al., 2011; Rosel and Wilcox,
2014). In addition, habitat-based density modeling identified similar
habitat (i.e., approximately 100-400 m water depths along the
continental shelf break) as being potential Rice's whale habitat
(Roberts et al., 2016), although the core habitat area contained
approximately 92 percent of the predicted abundance of Rice's whales.
See discussion provided at, e.g., 83 FR 29212, 29228, 29280 (June 22,
2018); 86 FR 5322, 5418 (January 19, 2021).
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\3\ The final rule refers to the GOM Bryde's whale (Balaenoptera
edeni). These whales were subsequently described as a new species,
Rice's whale (Balaenoptera ricei) (Rosel et al., 2021).
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There are few data on Rice's whale occurrence outside of the
northeastern GOM core habitat area. There were two sightings of
unidentified large baleen whales (recorded as Balaenoptera sp. or
Bryde's/sei whale) in 1992 in the western GOM during systematic survey
effort and, more recently, a NOAA survey reported observation of a
Rice's whale in the western GOM in 2017 (NMFS, 2018). There were five
potential sightings of Rice's whales by protected species observers
(PSOs) aboard industry geophysical survey vessels west of New Orleans
from 2010-2014, all within the 200-400 m isobaths (Rosel et al., 2021).
In addition, sporadic, year-round recordings of Rice's whale calls were
made south of Louisiana within approximately the same depth range
between 2016 and 2017 (Soldevilla et al., in press).
Although Rice's whales may occur outside of the core habitat area,
we expect that any such occurrence would be limited to the narrow band
of suitable habitat described above (i.e., 100-400 m) and that, based
on the few available records, these occurrences would be rare. CGG's
planned activities will overlap this depth range, with approximately 18
percent of the area expected to be ensonified by the survey above root-
mean-squared pressure received levels (RMS SPL) of 160 dB (referenced
to 1 micropascal (re 1 [mu]Pa)) overlapping the 100-400 m isobaths.
Therefore, while we expect take of Rice's whale to be unlikely, there
is some reasonable potential for take of Rice's whale to occur in
association with this survey. However, NMFS' determination in
reflection of the data discussed above, which informed the final rule,
is that use of the generic acoustic exposure modeling results for
Rice's whales would result in estimated take numbers that are
inconsistent with the assumptions made in the rule regarding expected
Rice's whale take (86 FR 5322, 5403; January 19, 2021).
Killer whales are the most rarely encountered species in the GOM,
typically in deep waters of the central GOM (Roberts et al., 2015;
Maze-Foley and Mullin, 2006). As discussed in the final rule, the
density models produced by Roberts et al. (2016) provide the best
available scientific information regarding predicted density patterns
of cetaceans in the U.S. GOM. The predictions represent the output of
models derived from multi-year observations and associated
environmental parameters that incorporate corrections for detection
bias. However, in the case of killer whales, the model is informed by
few data, as indicated by the coefficient of variation associated with
the abundance predicted by the model (0.41, the second-highest of any
GOM species model; Roberts et al., 2016). The model's authors noted the
expected non-uniform distribution of this rarely-encountered species
and expressed that, due to the limited data available to inform the
model, it ``should be viewed cautiously'' (Roberts et al., 2015).
NOAA surveys in the GOM from 1992-2009 reported only 16 sightings
of killer whales, with an additional three encounters during more
recent survey effort from 2017-18 (Waring et al., 2013; <a href="http://www.boem.gov/gommapps">www.boem.gov/gommapps</a>). Two other species were also observed on less than 20
occasions during the 1992-2009 NOAA surveys (Fraser's dolphin and false
killer whale).\4\ However, observational data collected by PSOs on
industry geophysical survey vessels from 2002-2015 distinguish the
killer whale in terms of rarity. During this period, killer whales were
encountered on only 10 occasions, whereas the next most rarely
encountered species (Fraser's dolphin) was recorded on 69 occasions
(Barkaszi and Kelly, 2019). The false killer whale and pygmy killer
whale were the next most rarely encountered species, with 110 records
each. The killer whale was the species with the lowest detection
frequency during each period over which PSO data were synthesized
(2002-2008 and 2009-2015). This information qualitatively informed our
rulemaking process, as discussed at 86 FR 5322, 5334 (January 19,
2021), and similarly informs our analysis here.
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\4\ However, note that these species have been observed over a
greater range of water depths in the GOM than have killer whales.
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The rarity of encounter during seismic surveys is not likely to be
the product of high bias on the probability of detection. Unlike
certain cryptic species with high detection bias, such as Kogia spp. or
beaked whales, or deep-diving species with high availability bias, such
as beaked whales or sperm whales, killer whales are typically available
for detection when present and are easily observed. Roberts et al.
(2015) stated that availability is not a major factor affecting
detectability of killer whales
[[Page 43002]]
from shipboard surveys, as they are not a particularly long-diving
species. Baird et al. (2005) reported that mean dive durations for 41
fish-eating killer whales for dives greater than or equal to 1 minute
in duration was 2.3-2.4 minutes, and Hooker et al. (2012) reported that
killer whales spent 78 percent of their time at depths between 0-10 m.
Similarly, Kvadsheim et al. (2012) reported data from a study of four
killer whales, noting that the whales performed 20 times as many dives
to 1-30 m depth than to deeper waters, with an average depth during
those most common dives of approximately 3 m.
In summary, killer whales are the most rarely encountered species
in the GOM and typically occur only in particularly deep water. While
this information is reflected through the density model informing the
acoustic exposure modeling results, there is relatively high
uncertainty associated with the model for this species, and the
acoustic exposure modeling applies mean distribution data over areas
where the species is in fact less likely to occur. In addition, as
noted above in relation to the general take estimation methodology, the
assumed proxy source (72-element, 8,000-in\3\ array) results in a
significant overestimate of the actual potential for take to occur.
NMFS' determination in reflection of the information discussed above,
which informed the final rule, is that use of the generic acoustic
exposure modeling results for killer whales for this survey would
result in estimated take numbers that are inconsistent with the
assumptions made in the rule regarding expected killer whale take (86
FR 5322, 5403; January 19, 2021).
In past authorizations, NMFS has often addressed situations
involving the low likelihood of encountering a rare species such as
Rice's whales or killer whales in the GOM through authorization of take
of a single group of average size (i.e., representing a single
potential encounter). See 83 FR 63268; December 7, 2018. See also 86 FR
29090; May 28, 2021 and 85 FR 55645; September 9, 2020. For the reasons
expressed above, NMFS determined that a single encounter of Rice's
whales or killer whales is more likely than the model-generated
estimates and has authorized take associated with a single group
encounter (i.e., up to 2 and 7 animals, respectively).
Based on the results of our analysis, NMFS has determined that the
level of taking authorized through the LOA is consistent with the
findings made for the total taking allowable under the regulations for
the affected species or stocks of marine mammals. See Table 1 in this
notice and Table 9 of the rule (86 FR 5322; January 19, 2021).
Small Numbers Determination
Under the GOM rule, NMFS may not authorize incidental take of
marine mammals in an LOA if it will exceed ``small numbers.'' In short,
when an acceptable estimate of the individual marine mammals taken is
available, if the estimated number of individual animals taken is up
to, but not greater than, one-third of the best available abundance
estimate, NMFS will determine that the numbers of marine mammals taken
of a species or stock are small. For more information please see NMFS'
discussion of the MMPA's small numbers requirement provided in the
final rule (86 FR 5322, 5438; January 19, 2021).
The take numbers for authorization are determined as described
above in the Summary of Request and Analysis section. Subsequently, the
total incidents of harassment for each species are multiplied by scalar
ratios to produce a derived product that better reflects the number of
individuals likely to be taken within a survey (as compared to the
total number of instances of take), accounting for the likelihood that
some individual marine mammals may be taken on more than one day (see
86 FR 5322, 5404; January 19, 2021). The output of this scaling, where
appropriate, is incorporated into adjusted total take estimates that
are the basis for NMFS' small numbers determinations, as depicted in
Table 1.
This product is used by NMFS in making the necessary small numbers
determinations through comparison with the best available abundance
estimates (see discussion at 86 FR 5322, 5391; January 19, 2021). For
this comparison, NMFS' approach is to use the maximum theoretical
population, determined through review of current stock assessment
reports (SAR; <a href="http://www.fisheries.noaa.gov/national/marine-mammal-protection/marine-mammal-stock-assessments">www.fisheries.noaa.gov/national/marine-mammal-protection/marine-mammal-stock-assessments</a>) and model-predicted abundance
information (<a href="https://seamap.env.duke.edu/models/Duke/GOM/">https://seamap.env.duke.edu/models/Duke/GOM/</a>). For the
latter, for taxa where a density surface model could be produced, we
use the maximum mean seasonal (i.e., 3-month) abundance prediction for
purposes of comparison as a precautionary smoothing of month-to-month
fluctuations and in consideration of a corresponding lack of data in
the literature regarding seasonal distribution of marine mammals in the
GOM. Information supporting the small numbers determinations is
provided in Table 1.
Table 1--Take Analysis
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Authorized Scaled take Percent
Species take \1\ Abundance \2\ abundance
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Rice's whale.................................... 2 n/a 51 3.9
Sperm whale..................................... 1,184 500.7 2,207 22.7
Kogia spp....................................... \3\ 448 136.1 4,373 3.7
Beaked whales................................... 5,224 527.6 3,768 14.0
Rough-toothed dolphin........................... 1,206 346.3 4,853 7.1
Bottlenose dolphin.............................. 36,314 10,422.2 176,108 5.9
Clymene dolphin................................. 2,528 725.4 11,895 6.1
Atlantic spotted dolphin........................ 6,628 1,902.3 74,785 2.5
Pantropical spotted dolphin..................... 11,471 3,292.3 102,361 3.2
Spinner dolphin................................. 3,073 882.1 25,114 3.5
Striped dolphin................................. 987 283.3 5,229 5.4
Fraser's dolphin................................ 292 83.9 1,665 5.0
Risso's dolphin................................. 743 219.3 3,764 5.8
Melon-headed whale.............................. 1,661 489.9 7,003 7.0
Pygmy killer whale.............................. 391 115.3 2,126 5.4
False killer whale.............................. 644 190.0 3,204 5.9
Killer whale.................................... 7 n/a 267 2.6
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Short-finned pilot whale........................ 480 141.7 1,981 7.2
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\1\ Scalar ratios were applied to ``Authorized Take'' values as described at 86 FR 5322, 5404 (January 19, 2021)
to derive scaled take numbers shown here.
\2\ Best abundance estimate. For most taxa, the best abundance estimate for purposes of comparison with take
estimates is considered here to be the model-predicted abundance (Roberts et al., 2016). For those taxa where
a density surface model predicting abundance by month was produced, the maximum mean seasonal abundance was
used. For those taxa where abundance is not predicted by month, only mean annual abundance is available. For
Rice's whale and killer whale, the larger estimated SAR abundance estimate is used.
\3\ Includes 24 takes by Level A harassment and 424 takes by Level B harassment. Scalar ratio is applied to
takes by Level B harassment only; small numbers determination made on basis of scaled Level B harassment take
plus authorized Level A harassment take.
Based on the analysis contained herein of CGG's proposed survey
activity described in its LOA application and the anticipated take of
marine mammals, NMFS finds that small numbers of marine mammals will be
taken relative to the affected species or stock sizes and therefore is
of no more than small numbers.
Authorization
NMFS has determined that the level of taking for this LOA request
is consistent with the findings made for the total taking allowable
under the incidental take regulations and that the amount of take
authorized under the LOA is of no more than small numbers. Accordingly,
we have issued an LOA to CGG authorizing the take of marine mammals
incidental to its geophysical survey activity, as described above.
Dated: July 13, 2022.
Catherine G. Marzin,
Deputy Director, Office of Protected Resources, National Marine
Fisheries Service.
[FR Doc. 2022-15310 Filed 7-18-22; 8:45 am]
BILLING CODE 3510-22-P
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