What Environment?
In February 2007, the Navy initiated training exercises without filing the EIS required by the National Environmental Protection Act of 1969 (NEPA) to document the possible environmental harm from the sonar training. Various groups challenged the Navy in court, and the case wound up in the Supreme Court yesterday, where the court heard arguments in "Winter v. Natural Resources Defense Council" (NRDC). The counsel for the Navy, General Garre summarized for Justice David Souter the Navy's decision to go ahead without the EIS: "it doesn't specifically say what happens if they [the laws] are not followed".
The District Court originally found in favor of NRDC: The Navy had violated (NEPA). Instead of complying with the court injunction, however, in short the Navy wrote its own environmental assessment EA and presented this to an executive-branch administrative agency called the Council on Environmental Quality (CEQ). The CEQ found that the Navy's mission constituted "emergency circumstances".
The Navy took this opinion back to the court, arguing that the court should dissolve its injunction. In more court reviews Los Angeles U.S. District Judge Florence Marie Cooper sifted through evidence and determined criteria for when the Navy should turn off sonar. According to the NRDC brief, the courts reviewed "thousands of pages of briefing and evidence over the course of many weeks, and tour[ed] a Navy destroyer--to assess the Navy's contention that the mitigation measures would risk the Navy's ability to train and certify its strike groups." The mitigations Cooper imposed were loosened in subsequent hearings.
In previous training exercises, the Navy had "trained and certified its strike groups using the two mitigation measures at issue in this appeal". Furthermore, following the lower court decisions. the Navy continued training exercises in the Pacific Ocean, "completing the last 13 of 14 training exercises, 8 of which were under the current rules", and did not appeal to the court for relief Kendall pointed out. But the Navy doesn't any more want to take steps to mitigate environmental damage.
Despite the fact that the Navy's training was not impeded by the mitigations, the Navy and the President appealed to the Supreme Court to overrule any measures imposed by the lower courts. Yesterday the Supreme Court question the two sides about whales, sonar, and impact statements. It considered issues of standing and equity, as well as the role of the executive branch in determining the fate of the environment and endangered species.
Sometimes the court seemed aloof to the information in the briefs. In balancing the possible harm to marine animals, Chief Justice Roberts suggested the possible harm on the other side was: "the potential that a North Korean diesel electric submarine will get within range of Pearl Harbor undetected". NRDC counsel Kendall corrected the Chief Justice: The case concerned only military training, not combat. Justice Breyer, also confused, elicited a laugh by suggesting that all military exercises were destructive: "You go on a bombing mission, do they have to prepare an environmental impact statement first?" Mr. Kendall again: "No."
Whales & Sonar: It's Not Pretty
Research shows that whales become disoriented, injured or die after sonar testing. Strandings and deaths that have been frequently documented; in North Carolina (2005); at Haro Strait off the coast of Washington State (2003); in the Canary Islands (2004, 2002, 1989, 1986, 1985); in Madeira (2000); the U.S. Virgin Islands (1999, 1998); Greece (1996), and the Bahamas (2000), and off the coast of Spain (2006), and more The coincidence of whale strandings or deaths and naval sonar testing exercises seems too obvious to ignore, but cause and effect scientific data on the whales are more difficult to compile. That said, recent research points to how the marine mammals become injured and die.
After the 2003 mass strandings in the Canary Islands, Nature published a report by Jepson et al, showing that beaked whales had gas filled cavities and emboli in their organs and tissues. The animals hemorrhage around their ears and brain. According to Jepson's theory the whales died from decompression sickness.1 A subsequent study in Science, 2004 found the same effect in sperm whales. 2. Jepson later reported that embolisms were also present in whales stranded off the coast of Spain in 2006. 3 More studies of strandings found similar evidence. 4
Common to the many reports, and consistent with observation, tagging, and later corpse analysis, whales seem to become disoriented when subjected to sonar, which leads to decompression sickness 5. Recent research by teams in the Ian Boyd lab at St Andrews University and in the Peter Tyack lab at the Woods Hole Oceanographic Institute suggest that the whales perceive the sonar as a predator. Tyack told Times Online published a story September 28, 2008, based in interviews with the two lead scientists. Said Tyack:
"[The Navy] uses pulses of similar frequency and duration to the pulses emitted by killer whales and is very loud. It seems to have a particularly strong effect on species, such as small beaked whales, of which killer whales are the primary predator."
This idea hasn't been completely vetted, but scientists are closing in on the mechanisms and possible mitigations. Beaked whales are most susceptible to harm because of their behavioral response of abnormal diving in the presence of sonar. Scientists suggest that the need to escape the sound causes the whales to dive frantically, breaking their usual feeding and breeding, and diving behavior which causes the bends, hemorrhaging and injuries.
Oh, This Won't Hurt at All, Says the Navy
The justices acknowledged they can't evaluate science. When presented with rationale by the Navy about needing to train at night because of thermal layers, Justice Breyer considered the Navy's stance: "Fine, they went on some exercises and they didn't run into these layered things. So obviously they couldn't have training." (Thermal layers and sonar are described here in the book, "How To Make War", by James Kunnigan, Chap. 10: Navy: Run Silent Run Deep.)
The court only anemically challenged General Garre's repeated assertions that the sonar caused no harm, and that the Respondents hadn't shown "irreparable harm". For instance General Garre referred the court to a Navy document listing "all the species of beaked whales and explained that the harms that are predicted in the environmental assessment are non-injurious, temporary harms". Alioto asked Garre to explain it in "lay terms". Garre led Alioto to conclude there wasn't "physical injury", rather the whales might just "swim in a different direction"? (As if your child was whining in the living room so you wandered into the kitchen to get yourself a snack, rather than, that you were suddenly subjected to unending earth-shatteringly loud, nerve-rattling noise that caused you to flee up to the attic window then cover your exploding ears and plunge from the roof.) Garre assured Alioto: "that's right".
Yet the NRDC presented significant evidence in the briefs. Kendall disputed General Garre's multiple assertions that sonar caused "no harm." He described the embolisms, gas filled pockets, and hemorrhaging, and presented this analogy to the court:
"In sound intensity, in this courtroom if we had a jet engine and you multiplied that noise by 2,000 times, correcting for water, that's the sound's intensity that would be going on in the water if you were a marine mammal near that source."
Loud?
What the Navy Doesn't Want Us Know?
People have long suspected the Navy knows more then they're letting on about how sonar effects marine life. According to the NRDC brief (PDF) the Navy predicted in their EA that the SOCAL sonar training would result in 170,000 incidents to marine mammals -- harassment, injuries, or deaths -- and 548 permanent injuries for beaked whales.
The Navy denied and backpedaled on harm during Supreme Court questioning, but there is plenty of evidence that militaries of the world understand sonar's effects. The science journal Nature obtained an unpublished 2007 report from the UK Military under the Freedom of Information Act 2000 documenting that sonar negatively effects whale behavior and can lead to death. 6 The UK military ran Operation Anglo-Saxon 06 in 2006 and reported on whale activity during the "submarine war-games". Using hydrophones, researchers found the number of whale recordings dropped by 75% over during sonar exercises. The whales stopped vocalizing and foraging for food, and the UK military predicted this would lead to '"second and third order effects on the animal and population as a whole"', including starvation and death, according to the report.
To the extent the research is sparse perhaps it's because the US Navy has tried to suppress its findings. Nature reported in "Panel quits in row over sonar damage" in 2006 that the US Navy pressured scientists to suppress evidence of harm from sonar. 7 The US Marine Mammal Commission (MMC) was convened by Congress in 2003 to advise Congress on a plan to research whales and sonar, however the commission broke apart, plan-less, after 2 years of meetings.
The journal spoke to members of the failed MNC who said that the science had been "highly politicized". According to one participant, "the Navy, as well as other groups that use sonar, including geophysical researchers and the oil and gas industry, blocked a consensus." Lindy Weilgart of Dalhousie University in Nova Scotia, Canada, told the journal: '"This process has been a travesty of fiscal responsibility, scientific integrity, and environmental stewardship."'
Environmental Law, by the Navy: "What He Said."
At first, the Supreme Court pursued the facts around the Navy's decision to ignore the law requiring the EIS, to simply make up its own environmental assessment (EA), with it's own criteria, unvetted by anyone but the Navy, not subject to public comment. Different justices questioned General Garre about the CEQ's authority as an office in the White House to override environmental law set out in NEPA. They suggested that perhaps the only "emergency" was that the Navy had ignored the legal requirement for the EIS before starting training. Then Justice Scalia proposed a different tactic for General Garre:
Scalia: "Look, the problem you face and maybe you're being whipsawed, is that you are effectively estopped from the argument that no EIS is necessary by the fact that you have agreed to these alternative arrangements. But you should not be estopped from arguing that at the time the EA was issued that was not a good faith completion of all the Navy's responsibilities....It assumes that the EA wasn't enough. And I'm not sure that we -- that that assumption is valid."
General Garre: "Well, that's right....the Navy believes that its EA was not only prepared in good faith, but was appropriate and reached the right conclusions...." Garre had repeatedly stated that the sonar training would cause little "likelihood of irreparable injury..." But Justice David Souter wondered whether: "without the EIS, the Navy is acting in -- in a state of -- of some degree of ignorance greater than would be the case if -- if it had done -- done the EIS."
Scalia addressed Garre again:
"The EA demonstrates in your view that the EIS would -- would very likely say that this -- this action by the Navy is okay. And since that is the case, there is -- there is no probability of irreparable harm; to the contrary, there is the probability of no irreparable harm because of the EA."
Said General Garre: "Well, we agree with that." (The Navy does agree with that, even though the EA predicted over 500 serious injuries and 170,000 incidents, it concludes no harm, no harm, again and again.)
Scalia later suggested:
"In all -- in all of these cases it is controverted, or in most of them, whether an EIS is either necessary -- is even necessary. So if the mere allegation that it was necessary gives rise to an allegation of irreparable harm, you are going to get a preliminary injunction in all cases?"
General Garre replied: "I think that's right."
However, earlier in the questioning, General Garre had assured the court that he recognized the Navy's original "duty to prepare the EIS". He had told the justices about the Navy's steadfast commitment to completing the tardy EIS document per previous legal agreements. Now, suddenly, Garre asserted he was "contesting" what he had before agreed to -- that the Navy needed to complete an EIS. This confused Justice Ginsburg, who remembered to the time 30 minutes earlier when Garre stated his commitment to "meet the goal" of producing the EIS by January, 2009 (although the training ends in 2008). Ginsburg said: "I thought you conceded that point". General Garre the quickly apologized "if I misspoke".
Who needs Scalia's book "Making Your Case Persuading Judges"? Just show up for the tutorial, let him argue your points, and nod. What Scalia said.
Good Stewards of The Environment
In the end, the Supreme Court justices puzzled over why the Navy was dragging its heels if the agency had completed the EA, was committed to completing the EIS, and if there was "no irreparable harm" to mammals. Garre, perhaps emboldened, suggested in closing that the NRDC did not even have standing if beaked whales were harmed. One justice queried the two parties about why they hadn't worked it out, as opposed to leaving it to the courts. Judges aren't experts on Naval exercises or marine biology, the justices pointed out. NRDC's Kendall replied that "the Navy is focused on having it its way or no way". Chief Justice John G. Roberts retorted, "that's not fair"; the Navy had continually compromised, he said, but "no good deed goes unpunished".
Scientists warn that the beach strandings may indicate an even larger problem -- not all animals may be washed ashore, many more may be dying and lost at the sea. In a review of research on whale injuries, causes, and mitigation by Marine Pollution Bulletin. 8, the authors write: "...the greatest user of military sonars in the world, the US Navy, appears to be in denial about the situation." While the US has taken significant action to weaken cetacean protection in national and international waters, especially with regard to sonar, the Navy continues to boast about its commitment to being "good stewards of the environment".
The Supreme Court will issue a decision later this session.
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1Jepson et al, Gas-bubble lesions in stranded cetaceans: was sonar responsible for a spate of whale deaths after an Atlantic military exercise? Nature, 425, 575-57, 9 October 2003: doi:10.1038/425575a.2 Moore and Early; Cumulative sperm whale bone damage and the bends, Science 306, Vol. 306. no. 5705, p. 2215. 2004: doe: 10.1126/science.1105452
3 Dalton, Rex; More whale strandings are linked to sonar : Nature 440, 593 30 March 2006 doi :10.1038/440593a.
4 Fernandez, A. Gas and fat embolic syndrome" involving a mass stranding of beaked whales (family Ziphiidae) exposed to anthropogenic sonar signals.Veterinary Patholology 42:446-457 2005.
5 Tyak et al. Extreme diving of beaked whales. Journal of Experimental Biology 209, 4238-4253. 2006 doi: 10.1242/jeb.02505).
6 Cressey, Daniel; Sonar does affect whales, military report confirms. Nature, Aug 1, 2008. doi:10.1038/news.2008.997.
7 Dalton, Rex; Panel quits in row over sonar damage. Nature 439, 376-377 26 January 2006 doi :10.1038/439376a;doi:10.1038/439376a
8 Parsons et al., Navy sonar and cetaceans: Just how much does the gun need to smoke before we act? Marine Pollution Bulletin, July, 2008 doi:10.1016/j.marpolbul.2008.04.025
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Acronym Required previously wrote on this subject in "Whales In A Time of War", and "Whales in Court".