Opinion ID: 3053972
Heading Depth: 4
Heading Rank: 2

Heading: Other Subsistence Activities

Text: Shell’s activities will also affect other Inupiat subsistence resources, such as beluga whales, caribou, and fish. Petitioners urge the agency to take a closer look at the impacts of exploration because of the proximity of the proposed activities to the Inupiat hunting and fishing grounds. The EA’s comments focus almost entirely on the subsistence use of bowhead whales. It notes only in one sentence that “helicopter and aircraft supply flights have the potential to disturb caribou movements and alter the subsistence hunt.” The multi-sale EIS takes a cursory glance at these other animal populations, stating that drilling activities “could affect the availability of” beluga whales to subsistence hunters. The study further acknowledges that flight activity may disturb caribou populations.5 5 In a separate agreement, Shell has agreed to keep helicopter traffic above 1,500 feet to minimize any interference with the caribou hunt. ALASKA WILDERNESS v. KEMPTHORNE 15581 The biggest gap in the agency’s multi-sale EIS and EA is the lack of both information and analysis examining the impacts this project will have on fish populations. In analyzing fish populations, the EA acknowledges: “Given scientific uncertainty surrounding how several important fish species would react to varying levels of drilling program noise, we believe it possible there will be more than a minimal level of effect on some species.” MMS acknowledges that it “cannot concur” with Shell’s assurances that its activities “may have minimal to no impact on fish.” The agency goes on to state: The MMS also cannot concur that the effects on all fish species would be ‘short term’ or that these potential effects are insignificant, nor would they be limited to the ‘. . . localized displacement of fish . . .’, because they could persist for up to five months each year for three consecutive years and they could occur during critical times in the life cycle of important fish species. The MMS remains concerned that the potential adverse effects described for several fish species will occur to an unknown degree, however none are expected to exceed the level that would require three generations to recover (the threshold for a significant effect). After this lengthy discussion on concerns and gaps in the data, the EA’s abrupt conclusion that any potential effects will be insignificant is unsubstantiated. This is the type of “conclusory assertion” that is disfavored by this court because the agency has not provided any scientific data that justifies this position. See Ocean Advocates, 402 F.3d at 864. The EA notes that it does not have the data to examine the full effect of underwater noise on fish movement. When information necessary to determine the effects is readily available or easily gathered, the law requires that an agency gather such 15582 ALASKA WILDERNESS v. KEMPTHORNE information. See Nat’l Parks & Conservation Ass’n, 241 F.3d at 733 (stating agency’s “lack of knowledge does not excuse the preparation of an EIS; rather it requires the [agency] to do the necessary work to obtain it.”). Here, MMS has not shown that this information is unattainable. If data on the impacts of fish is not readily available, then the agency must give a more complete explanation of how, in light of those gaps, it still believes this project would not cause a significant impact on fish and the communities that consume them. The EA ultimately concludes that Inupiat communities may suffer cultural consequences from drilling activities, but does not state whether these effects will be “significant.” Instead, the EA relies on mitigation measures in the hopes that they would ameliorate any harm done: “Required mitigation, monitoring, and conflict avoidance measures . . . would serve collectively to mitigate disturbance effects on Native lifestyles and subsistence practices and likely would mitigate any consequent impacts on sociocultural systems.” As discussed above, these mitigation measures do not go far enough to rectify the potential that Shell’s project will cause substantial harm to Inupiat communities on Alaska’s northern shore. [17] In sum, MMS failed to take a “hard look” at the impacts this plan will have on Inupiat subsistence activities. The agency notes the gaps in its data and the potential for serious consequences, but then comes to the unsubstantiated conclusion that any impacts will be insignificant. The agency’s broad assertions are not supported by the record. See EPIC, 451 F.3d at 1009 (agency must consider all relevant factors and provide a convincing statement of reasons to justify its decision). Accordingly, MMS should create either a revised environmental analysis or, as necessary, an environmental impact statement, taking a closer look at how Shell’s drilling in these specific sites will affect Inupiat subsistence activities. ALASKA WILDERNESS v. KEMPTHORNE 15583