Opinion ID: 3053972
Heading Depth: 3
Heading Rank: 1

Heading: Impacts on Bowhead Whales

Text: MMS’s EA fails to take a hard look at whether Shell’s exploratory drilling program would have a “significant” effect on bowhead whales, an endangered species. See 40 C.F.R. § 1508.27(b)(9) (agency should consider “degree to which the action may adversely affect an endangered or threatened species”). The EA lacks sufficient analysis on the consequences of underwater noise and its impact on bowheads’ migratory routes. Although the presence of some negative effects does not mandate a finding of significant impact, the agency must “consider the degree of adverse effect on a species.” Env’t Protection Info. Center (EPIC) v. U.S. Forest Serv., 451 F.3d 1005, 1010-11 (9th Cir. 2006); see also Native Ecosystems Council, 428 F.3d at 1240-41 (any mention of an adverse 15572 ALASKA WILDERNESS v. KEMPTHORNE impact does not necessarily compel an EIS, but an agency should not use a “soft touch or brush-off of negative effects”). [7] The major shortcoming of the agency’s environmental analysis is that it does not assess the impacts that would be felt by the bowhead whale population from a project in the migratory route that involves two drillships and two icebreakers. The multi-sale EIS envisions “[a] maximum of two drilling rigs” would be used during this time, and the EA “assumed that two drilling rigs with icebreaker support might operate during any year.” However, aside from nominally mentioning the possible extent of this project, the studies relied upon by the agency do not actually assess the potential significance of underwater noise from a drilling operation of this scope. [8] The multi-sale EIS discusses, in a general sense, the impact of noise on bowhead whales, citing a number of studies that have been conducted on the topic. However, that document contains no studies that analyze the effects of noise from a project with two drillships and two icebreakers. The studies assessing the effect of noise in other situations suggest that bowheads respond to drilling noise by altering their migration speed and swimming direction to avoid closely approaching the noise sources. In discussing icebreaker noise, the multi-sale EIS states, “[e]ffects of an actual icebreaker on migrating bowheads, especially mothers and calves, could be biologically significant.” Moreover, studies cited in the multisale EIS use varying methodologies and come to inconclusive results. Many of these reports use noise simulations, but there is limited data on how bowheads would respond in an uncontrolled setting. The reports state: “There are no observations of bowhead reactions to icebreakers breaking ice,” and “playback results may somewhat understate the differences between truly undisturbed whales versus those exposed to playbacks.” The generalized information contained in the multi-sale EIS does not adequately demonstrate that the agency has taken a hard look at the effects of Shell’s project ALASKA WILDERNESS v. KEMPTHORNE 15573 on bowhead whales. After making the observation that noise could cause significant biological effects, there is not additional information that supports why any specific project would not cause real harm to whale populations. In particular, it is not evident from the multi-sale EIS that a project using the type of equipment proposed by Shell would not have a significant impact on bowhead whales. The EA does not cure this infirmity. The EA gives only a brief description of the level of noise the individual drillships in Shell’s proposal could make, but does not examine the combined effect of all vessels operating simultaneously. The agency’s analysis relies in large part on a biological opinion (“BiOp”) prepared by the National Marine Fisheries Service (“NMFS”) in 2006. MMS asserts that the BiOp “covers the proposed Shell operations” because it assumed a situation where two drilling rigs with icebreaker support would operate in an area covering up to twelve wells. But there is no indication that the BiOp in fact relies on studies involving two drillships and two icebreakers. The BiOp acknowledges that the “potential total adverse effects of long-term added noise, disturbance, and related avoidance of feeding and resting habitat . . . are unknown.” In addition, “[t]here has been no documented evidence that noise from previous OCS operations has served as a barrier to migration,” but “[c]oncentrations of loud noise and disturbance activities during the open water period have the potential to cause large numbers of bowheads to avoid using areas for resting and feeding for long periods of time . . . while the noise producing activities continue.” This analysis indicates that there are serious concerns and uncertainties about the manner in which the endangered bowhead population would respond to Shell’s three year exploratory drilling plan. Despite these concerns, the BiOp goes on to allege that “bowhead whales exposed to noise-producing activities . . . most likely would experience temporary, nonlethal effects.” It comes to the conclusion that “such exploratory drilling would not jeopardize the population.” This determina15574 ALASKA WILDERNESS v. KEMPTHORNE tion is not supported by the BiOp’s contrary assertions that noise could cause serious adverse effects. MMS realizes the distinguishing characteristics between Shell’s specific proposal and the scope of prior studies, but does not then engage in any additional analysis. The agency admits in the EA that, “in the past, operations with one drill ship and associated icebreakers have displaced the migration slightly, and no whales were sighted between the operations and shore, but it is unknown what the increased level of effect of two proposed drillships and associated icebreakers and other attendant vessels would be.” In MMS’s own review of a 1993 monitoring study, the agency notes that the report “detected behavioral changes in bowheads around drillship operations near Camden Bay.” MMS goes on to state: With regards to the MMS significance criteria, there is no evidence that the offshore displacement . . . persisted for more than a generation (about 17 years). So, the level of effect of a drillship in Camden Bay is probably not significant by MMS NEPA standards. However, the same type of displacement to the east of Kaktovik where whales frequently feed would affect growth and could have a more serious biological effect. Also, even though there isn’t a significant biological effect from in Camden Bay operations, there could be a significant sociocultural effect if the bowheads do not migrate back into the shore- ward portion of the migration corridor as they approach Cross Island. Notably, the EA also states that the “effect on bowheads is likely to be greater than for [the 1993 activities] because of Shell’s proposal to use two drillships, two large icebreakers, and several associated vessels.” Although the agency mentions the possibility for increased impacts on bowhead whales and the human populations who depend on them, it fails to ALASKA WILDERNESS v. KEMPTHORNE 15575 take a hard look at whether a proposal of this magnitude will have significant impacts on this endangered species. The agency’s attempt to rely upon a monitoring program as a mitigation measure is similarly ill-founded. This section of the EA ends with a discussion of “Stipulation No. 4” which requires that Shell conduct a site-specific whale monitoring program during its drilling operations. Instead of insisting on alternative mitigation measures or conducting a full EIS at this time, MMS states it “has the authority to modify approved operations to ensure that significant biological populations or habitats deserving protection are not subject to a threat of serious, irreparable, or immediate harm.” [9] Federal regulations define “mitigation” as a way to avoid, minimize, rectify, or compensate for the impact of a potentially harmful action. 40 C.F.R. §§ 1508.20(a)-(e). An agency can rely upon mitigation measures in determining whether an environmental impact is significant. See Nat’l Parks & Conservation Ass’n, 241 F.3d at 734. In order to be effective, a mitigation measure must be supported by analytical data demonstrating why it will “constitute an adequate buffer against the negative impacts that may result from the authorized activity.” Id. A mitigation measure must render potential impacts “so minor as to not warrant an EIS.” Id. The proposed monitoring program fails this test, as it could detect impacts only after they have occurred. MMS’s statement that it would reserve the authority to modify approved operations does not provide enough protection under this standard. A court must be able to review, in advance, how specific measures will bring projects into compliance with environmental standards. See id. at 733 (“The Parks Service proposes to increase the risk of harm to the environment and then perform its studies. . . . This approach has the process exactly backwards.”). Monitoring may serve to confirm the appropriateness of a mitigation measure, but that does not make it an adequate mitigation measure in itself. See EPIC, 451 F.3d at 1015-16. 15576 ALASKA WILDERNESS v. KEMPTHORNE [10] After considering the gaps in the multi-sale EIS and the EA, we conclude that the agency failed to take a “hard look” under NEPA because it did not provide a well-reasoned analysis of site-specific impacts to the endangered bowhead whale population. The tiered OCSLA process allows general analysis at the lease-sale stage, but the agency must then consider site-specific impacts before approving an individual exploration plan. See Pit River Tribe v. U.S. Forest Serv., 469 F.3d 768, 784 (9th Cir. 2006) (holding that agency could not rely on “vague prior programmatic statements,” but needed to consider “site-specific impacts” when a “critical decision has been made to act” on a lease sale); Vill. of False Pass v. Watt, 565 F. Supp. 1123, 1135 (D. Alaska 1983) (“[A] purpose of OCSLA is to permit an expedient resolution of preliminary matters in the development of oil lands while preserving administrative and judicial review for future times when potential threats to the environment are readily visualized and evaluated.”). As the agency itself notes in the multi-sale EIS, the tiered approach “builds on the premise that as both the agencies and companies involved move from general planning, to leasing, to exploration . . . the specificity of the information improves. The accompanying environmental analysis that flows from each stage also is more specific with respect to location, timing, and magnitude.” The EA contains the names of Shell’s drilling vessels (the Kulluk and the Frontier Discoverer) and icebreakers (the Kapitan Dranitzyn and the Vladimire Ignatyuk), and mentions the other vessels Shell intends to use. However, merely noting the details of Shell’s EP does not demonstrate that the effects of this plan were actually analyzed. The results of the studies in the multi-sale EIS and EA were inconclusive. The agency may not rely on past studies on the general impact of noise on bowhead whales to justify its failure to conduct a particularized assessment here. This is especially true when past studies acknowledged that noise levels may, in certain circumstances, cause significant disturbances to whales. Additionally, MMS’s analysis should take ALASKA WILDERNESS v. KEMPTHORNE 15577 a closer look at the locations of Shell’s individual wells in relationship to the migratory patterns of the bowhead whales. [11] In sum, MMS abrogated its NEPA duties because neither the EA nor the documents it tiers to considers the specific parameters and potential dangers of Shell’s project. There is substantial uncertainty about how various levels of noise would affect whales and their migratory patterns. See 40 C.F.R. §§ 1508.27(b)(5), (9) (in its review, agency should consider degree to which possible effects to the environment are highly uncertain, as well as how action may adversely affect an endangered species). Furthermore, the proposed mitigation measure does not save the plan because it is not clear that a monitoring program will ameliorate potentially serious negative impacts. See Nat’l Parks & Conservation Ass’n, 241 F.3d at 734.