Beluga Whale (Delphinapterus leucas): Report on the progress of recovery strategy implementation for the St. Lawrence Estuary Population for the Period 2012 to 2019

Preface

The federal, provincial, and territorial government signatories under the Accord for the Protection of Species at Risk (1996) agreed to establish complementary legislation and programs that provide for the protection of species at risk throughout Canada. Under section 46 of the Species at Risk Act (S.C. 2002, c.29) (SARA), the competent ministers are responsible for reporting on the implementation of the recovery strategy for a species at risk, and on the progress towards meeting its objectives within 5 years of the date when the final recovery strategy was published on the Species at Risk Public Registry and in every subsequent 5-year period, until recovery is no longer required under SARA, or the species’ recovery is no longer feasible.

Reporting on the progress of recovery strategy implementation requires reporting on the collective efforts of the competent minister(s), provincial and territorial governments and all other parties involved in conducting activities that contribute to the species’ recovery. Recovery strategies identify broad strategies and approaches that will provide the best chance of recovering species at risk. Some of the identified strategies and approaches are sequential to the progress or completion of others, and not all may be undertaken or show significant progress during the timeframe of a report on the progress of recovery strategy implementation (progress report).

The Minister of Fisheries, Oceans and the Canadian Coast Guard is the competent minister under SARA for the Beluga Whale, St. Lawrence Estuary population, and has prepared this progress report.

As stated in the preamble to SARA, success in the recovery of species at risk depends on the commitment and cooperation of many different constituencies that will be involved in implementing the directions set out in the recovery strategy and will not be achieved by Fisheries and Oceans Canada, or any other jurisdiction alone. The cost of conserving species at risk is shared amongst different constituencies. All Canadians are invited to join in supporting and implementing the “Recovery Strategy for the Beluga Whale (Delphinapterus leucas) (DFO), St. Lawrence Estuary Population”, for the benefit of the species and Canadian society as a whole.

Acknowledgments

This progress report was prepared by Species at Risk Program staff, with input from other sectors of Fisheries and Oceans Canada (DFO), federal and provincial government departments, non-governmental organizations and academic partners. DFO would also like to express its appreciation to all individuals and organizations who have contributed to, and continue to support, the recovery of the Beluga Whale, St. Lawrence Estuary population.

Executive summary

The Beluga Whale (Delphinapterus leucas) (DFO), St. Lawrence Estuary population (hereafter St. Lawrence Estuary Beluga), was listed as threatened under the Species at Risk Act (SARA) in 2005. In 2014, the Committee on the Status of Endangered Wildlife in Canada (COSEWIC) reassessed the species as endangered, and in 2017 it was listed as such in schedule 1 of SARA. The “Recovery Strategy for the Beluga Whale (Delphinapterus leucas) (DFO), St. Lawrence Estuary population in Canada”was finalized and published on the Species at Risk Public Registry in 2012.

The main threats to the St. Lawrence Estuary Beluga identified in the recovery strategy are historical, specifically, hunting and harassment; as well as current threats including environmental contaminants; anthropogenic disturbance (including underwater noise); reduced prey abundance, quality and availability; other habitat degradation; vessel strikes; entanglement in fishing gear; scientific activities; toxic spills; toxic algal blooms; and epizootics.

The recovery strategy sets out the following population and distribution objectives for the St. Lawrence Estuary Beluga:

• reduce contaminants in belugas, their prey, and their habitat
• reduce anthropogenic disturbances
• ensure adequate and accessible food supply
• mitigate the effects of other threats to population recovery
• protect the beluga habitat throughout the entire distribution range
• ensure regular monitoring of the St. Lawrence Estuary Beluga population

During the time period reported by this progress report, progress has been made in the following areas:

• The manufacture, use, import, sale or offering for sale of many contaminants (some of which are described in appendix 2 of the recovery strategy) have been banned under the Prohibition of Certain Toxic Substances Regulations (2012)
• The prohibition against approaching Belugas within 400 m has been maintained in the Marine Activities in the Saguenay–St. Lawrence Marine Park Regulations, amended in January 2017. These regulations also include new measures to better protect the species, notably: (1) vessels are prohibited from remaining stationary or changing directions repetitively, and are required to operate at a constant speed of between 5 and 10 kt within a 0.5 nautical mile (926 m) radius of a Beluga; (2) personal watercraft, air cushion vehicles and towed watersports are prohibited within the boundaries of the Saguenay–St. Lawrence Marine Park; (3) vessels are required to reduce their speed at the mouth of the Saguenay River; (4) temporary exclusion areas (areas where navigation is prohibited) can be established within the Marine Park, such as the Sainte-Marguerite Bay exclusion area (June 21 to September 21) which was established by government order in June 2018 and the closure of nearly 44% of the territory of the Marine Park to whale watching cruises since 2019
• The Marine Mammal Regulations in Canada were also amended in 2018 to increase the approach distance between vessels and Belugas in the St. Lawrence Estuary to 400 m
• Increased funding contributed to recovery through initiatives included in the $1.5 billion Oceans Protection Plan to support cleaner, healthier and safer oceans, and the $167.4 million Whales Initiative directed towards the recovery of endangered whale populations including St. Lawrence Estuary Beluga
• Several of the measures that have been established have had a positive impact on noise levels in the Saguenay Fjord and St. Lawrence Estuary. For example, DFO issued a science advisory to limit commercial traffic in the south channel of Ile Rouge to prevent increased noise in this area heavily used by the female and juvenile Beluga whale herds (DFO, 2014b). Subsequently, the Working Group on Marine Transportation and the Protection of Marine Mammals in the Estuary (G2T3M) has recommended the use of the north channel and the application of speed reduction measures targeting commercial shipping vessels to minimize the impact of noise on Belugas and reduce the risk of collisions with whales. These voluntary measures, which are in effect from May to October and monitored by the G2T3M, were first put in place in 2013 and are announced through Canadian Coast Guard (CCG) notices to shipping
• The Quebec government has prohibited all activities related to oil and gas exploration and development in the northwestern Gulf of St. Lawrence, west of the western tip of Anticosti Island, and in the St. Lawrence Estuary

The progress made to date is due mainly to legislative changes limiting human activities and contaminants that pose a significant threat to the recovery of the St. Lawrence Estuary Beluga. In recent years, numerous studies have been conducted under initiatives implemented by the Government of Canada (Oceans Protection Plan 2016; Whales Initiative 2018) and the Government of Quebec ($2.1 million agreement over 5 years between the Ministère des Forêts, de la Faune et des Parcs du Québec [MFFP; Quebec Department of Forests, Wildlife and Parks]  and the Université du Québec en Outaouais [UQO]). However, the results of these studies are not yet available and thus have not been included in this document.

1 Introduction

This report outlines the progress made from 2012 to 2019 towards meeting the objectives set out in the “Recovery Strategy for the Beluga Whale (Delphinapterus leucas) (DFO), St. Lawrence Estuary Population in Canada” and should be considered as part of a series of documents for this species that should be taken into consideration together, including the recovery potential assessment of Beluga populations (DFO 2005), the recovery strategy (DFO 2012), the Committee on the Status of Endangered Wildlife in Canada (COSEWIC) Assessment and Status Report (COSEWIC 2014), the Review of the Effectiveness of Recovery Measures for St. Lawrence Estuary Beluga (Lesage 2017), the Action Plan to Reduce the Impact of Noise on the Beluga Whale (Delphinapterus leucas) (DFO) and Other Marine Mammals at Risk in the St. Lawrence Estuary (DFO, 2020) and the Action Plan to Reduce the Impact of Other Threats to the St. Lawrence Estuary Beluga (Delphinapterus leucas), which is currently being prepared by Fisheries and Oceans Canada (DFO).

Section 2 of this progress report summarizes key information on the threats to the species, population and distribution objectives for achieving its recovery, approaches for meeting the objectives, and performance indicators to measure the progress of recovery. For more details, readers should refer to the “Recovery Strategy for the Beluga Whale (Delphinapterus leucas) (DFO), St. Lawrence Estuary Population in Canada” (DFO 2012). Section 3 reports on the progress of activities identified in the recovery strategy to support achieving the population and distribution objectives and the identification of critical habitat. Section 4 provides a concluding summary of the progress made towards achieving the recovery objectives through 2019.

2 Background

2.1 COSEWIC assessment summary

The listing of the Beluga Whale, St. Lawrence Estuary population (hereafter St. Lawrence Estuary Beluga) as threatened under the Species at Risk Act (SARA) in 2005 led to the publication of a recovery strategy for the species in 2012. The recovery strategy is consistent with the information provided in the COSEWIC status report (COSEWIC 2004) and the COSEWIC summary. This information was included in section 1.1 of the recovery strategy. The listing and development of the recovery strategy were further informed by the Recovery Potential Assessment of Cumberland Sound, Ungava Bay, Eastern Hudson Bay and St. Lawrence Beluga Populations (Delphinapterus leucas) (DFO) (DFO 2005).

In 2014, COSEWIC re-examined and changed the status of the St. Lawrence Estuary Beluga, from threatened to endangered in the COSEWIC Assessment and Status Report (COSEWIC 2014).

COSEWIC assessment summary, November 2014

Common name
Beluga Whale, St. Lawrence Estuary population

Scientific name
Delphinapterus leucas

Status
Endangered

Reason for designation
This population, endemic to Canada, is at the southernmost limit of the species’ distribution, and is reproductively and geographically isolated from other populations. This population of a long-lived, slowly reproducing species was severely reduced by hunting, which continued until 1979. Since population monitoring surveys began in the 1980s, the total population size has remained at around 1,000 individuals, less than 20% of the population size in the late 1800s or early 1900s. The major threats currently affecting this population include pathogens, toxic algal blooms, pollution, noise disturbance, and other human intrusions and disturbance. The impacts of these threats are likely amplified by the low number of mature individuals remaining in the population. Since the mid-2000s, the population has shown evidence of major demographic changes including increased neonate mortality and a decline in the proportion of young individuals in the population. These trends, together with past and ongoing habitat degradation, and projected increases in threats, suggest that the status of this population has worsened and is at considerably greater risk than when it was previously assessed by COSEWIC in 2004.

Occurrence
Quebec, Atlantic Ocean

Status history
Designated endangered in April 1983. Status re-examined and confirmed in April 1997. Status re-examined and designated threatened in May 2004. Status re-examined and designated endangered in November 2014.

2.2 Threats

The “Recovery Strategy for the Beluga Whale (Delphinapterus leucas) (DFO) (DFO), St. Lawrence Estuary Population in Canada” (DFO 2012) identifies the threats to the survival and recovery of the Beluga and identifies the activities that are likely to destroy its critical habitat. These threats include hunting and harassment; contaminants; anthropogenic disturbance (including underwater noise, vessel strikes, entanglement in fishing gear, and non-essential scientific activities); reduced prey abundance, quality and availability; other degradation of habitat; toxic spills; toxic algal blooms; and epizootics.

Critical habitat for the St. Lawrence Estuary Beluga has been identified, to the extent possible, in section 2.4 of the recovery strategy (DFO 2012) and corresponds to the summer distribution of groups of adults with newborns and juveniles, namely the upper estuary, from the battures aux Loups Marins to the Saguenay River, and the southern portion of the lower estuary. Table 6 of the recovery strategy provides examples of activities that are likely to result in the destruction of critical habitat; the list is neither exhaustive nor exclusive, and the inclusion of activities has been guided by the relevant threats to habitat described in the recovery strategy. For more details on the activities likely to result in the destruction of critical habitat, consult the recovery strategy (DFO 2012).

2.3 Recovery

This section summarizes the information, found in the recovery strategy (DFO 2012), on the population and distribution objectives that are necessary for the recovery of the St. Lawrence Estuary Beluga, and on performance indicators that provide a way to define and measure progress toward achieving the population and distribution objectives.

Section 2 of the recovery strategy (DFO 2012) identifies the following population and distribution objectives necessary for the recovery of the species:

• achieve a long-term population size of 7,070 individuals, or 70% of its historical size
• achieve a population growth rate of at least 2% per year
• reach an intermediate objective of a population size of 1,000 mature individuals
• increase the beluga’s range to a minimum level corresponding to 70% of the historical distribution area

Section 2.6 of the recovery strategy (DFO 2012) includes the following performance indicators to define and measure progress toward achieving the population and distribution objectives:

• increase in population size
• increase in the number of mature individuals to 1,000 adult Belugas
• increase in the distribution area
• increase in the yearly recruitment rate
• steady-state calving percentage
• decrease in the mortality rate of juveniles

3 Progress towards recovery

The recovery strategy for St. Lawrence Estuary Beluga (DFO 2012) divides the recovery effort into 6 recovery objectives: 1) reduce contaminants in Belugas, their prey, and their habitat, 2) reduce anthropogenic disturbances, 3) ensure adequate and accessible food supply, 4) mitigate the effects of other threats to population recovery, 5) protect the Beluga habitat throughout the entire distribution range, and 6) ensure regular monitoring of the St. Lawrence Estuary Beluga.

Section 3.1 provides information on the activities undertaken to implement the broad strategies and approaches identified in the recovery strategy. Section 3.2 describes the progress made in carrying out the work outlined in the recovery strategy’s schedule of studies to identify critical habitat. Section 3.3 reports on the progress on meeting the performance indicators and other commitments (for example, action plan and critical habitat order) identified in the recovery strategy and information obtained through implementing the recovery strategy.

3.1 Activities supporting recovery

Table 1 provides information on the implementation of activities undertaken to address the broad strategies and approaches identified in the recovery planning table of the recovery strategy.

^a Participants are listed alphabetically. Not all activities have specific participants identified.

^b The research carried out was within the 2012 to 2019 reporting period represented in this progress report, albeit the publication date occurred afterwards.

3.2 Activities supporting the identification of critical habitat

Table 2 provides information on the implementation of the studies undertaken to identify critical habitat in accordance with the schedule of studies provided in the recovery strategy. Each study has been assigned a status according to the following list:

• completed: the study has been carried out and completed
• in progress: the planned study is underway and has not concluded
• not started: the study has been planned but has yet to start
• cancelled: the planned study will not be started or completed

^a Participants are listed alphabetically. Not all activities have specific participants identified.

3.3 Summary of progress towards recovery

3.3.1 Status of performance indicators

Table 3 provides a summary of the progress made toward meeting the performance indicators outlined in the recovery strategy (DFO 2012). Each indicator has been assigned 1 of 4 statuses:

• not met: the performance indicator has not been met, and little to no progress has been made
• partially met, underway: moderate to significant progress has been made toward meeting 1 or more elements of the performance indicator, and further work is ongoing or planned
• met: the performance indicator has been met and no further action is required
• met, ongoing: the performance indicator has been met, but efforts will continue until such time the population is considered to be recovered (that is, the indicator will be reported in the next 5-year progress report)

3.3.2 Completion of action plan

The Action Plan to Reduce the Impact of Noise on the Beluga Whale (Delphinapterus leucas) (DFO) and Other Marine Mammals at Risk in the St. Lawrence Estuary was published in March 2020. This action plan is based on the threat of anthropogenic disturbances, more specifically underwater noise. The document proposes a series of measures to improve our knowledge of noise sources in the St. Lawrence Estuary. These measures, which arose from multiple consultations and discussions with Indigenous groups and stakeholders from various sectors connected with the St. Lawrence Estuary, as well as with the Government of Quebec, are grouped into 4 main strategies:

• research and data acquisition
• threat management
• communication and outreach
• coordination and monitoring

Another section of the action plan focuses on the socio-economic costs and benefits of implementing the action plan, as well as progress indicators for measuring the effectiveness of the measures implemented.

A second action plan, which will address the other identified threats to the St. Lawrence Estuary Beluga, is currently being developed.

3.3.3 Critical habitat identification and protection

The 2012 recovery strategy includes the identification of critical habitat using the area of occupancy approach. It corresponds to the summer distribution of groups made up of adults and newborn calves and juveniles, that is the upper estuary, from the battures aux Loups Marins to the Saguenay River, and the southern portion of the lower estuary. Studies are underway to increase our knowledge of this habitat and to define the areas used by Belugas outside the summer season.

In 2017, the critical habitat of the Beluga was legally protected by a Ministerial Order under section 58 of SARA.

3.3.4 Recovery feasibility

The recovery of the St. Lawrence Estuary Beluga is feasible, based on the best available information. However, according to Williams et al. (2017), the recovery objective of reaching 7,070 individuals by 2100 (which corresponds to 70% of the historical population) is unattainable. A new recovery objective will be contemplated when the recovery strategy is updated. Nevertheless, the recovery of the St. Lawrence Estuary Beluga is still considered feasible based on having met the 4 criteria identified for the technical and biological feasibility of recovery (previously identified in the 2012 recovery strategy). These 4 criteria are:

• Individuals of the wildlife species that are capable of reproduction are available now or in the foreseeable future to sustain the population or improve its abundance
• Sufficient suitable habitat is available to support the species or could be made available through habitat management or restoration
• The main threats to the species or its habitat may be avoided or mitigated
• Recovery techniques exist to achieve the population and distribution objectives or can be expected to be developed within a reasonable time frame

4 Concluding statement

From 2012 to 2019 , progress in implementing the activities identified in the “Recovery Strategy for the Beluga Whale (Delphinapterus leucas) (DFO), St. Lawrence Estuary Population” has been made in some areas, namely the tightening of regulations targeting the use, manufacture and import of contaminants and toxic products; industrial atmospheric emissions; environmental contaminants; and recreational and commercial navigation within the boundaries of the Saguenay–St. Lawrence Marine Park. Awareness and education efforts targeting users of the St. Lawrence Estuary have also been productive in terms of the observance of navigation rules and approach distances for marine mammals. However, the situation of the St. Lawrence Estuary Beluga remains critical, as demonstrated by its change in status under SARA from threatened to endangered in the spring of 2017.

Based on the information available and knowledge that has been acquired since the recovery strategy was published, there does not appear to be an improvement in the Beluga’s status. Indices do not suggest an increase in the size of the population, an increase in the population of mature individuals to 1,000 adult Belugas, or a growth rate in the population. Furthermore, the distribution area seems to be the same, the percentage of newborns in the population does not appear to have increased, and the rate of juvenile mortality does not appear to have declined. Implementation of the first action plan, the goal of which is to reduce the impact of underwater noise, should support this population’s recovery. A second action plan is currently in preparation, and will deal with other threats of priority to the St. Lawrence Estuary Beluga (prey availability, environmental contamination, and anthropogenic disturbance).

Additional next steps to further the Beluga’s recovery should be the establishment of a marine protected area in the St. Lawrence Estuary, as well as the continuation of other specific activities to its conservation, including awareness campaigns.

DFO remains committed to continuing efforts to recover the St. Lawrence Estuary Beluga. The progress made to date would not have been possible without the contributions of our partners. DFO is looking forward to continuing this successful collaboration and invites other potential partners interested in supporting the recovery of the St. Lawrence Estuary Beluga to join in this undertaking.

5 References

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