complaint against fracking near chaco
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INTHEUNITEDSTATESDISTRICTCOURTFORTHEDISTRICTOFNEWMEXICO
DINCITIZENSAGAINSTRUININGOURENVIRONMENT,SANJUANCITIZENSALLIANCE,WILDEARTHGUARDIANS,andNATURALRESOURCESDEFENSECOUNCIL,
Plaintiffs,v.
SALLYJEWELL,inherofficialcapacityasSecretaryoftheUnitedStatesDepartmentoftheInterior,UNITEDSTATESBUREAUOFLANDMANAGEMENT,anagencywithintheUnitedStatesDepartmentoftheInterior,andNEILKORNZE,inhisofficialcapacityasDirectoroftheUnitedStatesBureauofLandManagement,
Defendants.))) CaseNo.__________))) PETITIONFORREVIEWOF) AGENCYACTION))))))))))))__________________________________________)
INTRODUCTION
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1. PlaintiffsDinCitizensAgainstRuiningOurEnvironment,SanJuanCitizens
Alliance,WildEarthGuardians,andNaturalResourcesDefenseCouncil(collectively,Citizen
Groups)bringthisactionfordeclaratoryandinjunctiverelieftochallengetheUnitedStates
BureauofLandManagement,etal.s,(BLM)decisionstoapproveapplicationsforpermitto
drill(APDs)intotheMancosShale/Gallupformations(MancosShale)inaccordwiththe
AdministrativeProcedureAct(APA),5U.S.C.701etseq.,forviolationsoftheNational
EnvironmentalPolicyAct(NEPA),42U.S.C.4321etseq.,andtheNationalHistoric
PreservationAct(NHPA),16U.S.C.470etseq.WhileBLMsdecisionsare,individually,
problematic,theyalsoevidenceanegregiouspatternandpracticeofapprovingindividual
drillingpermitsintotheMancosShalethroughpiecemeal,boilerplateenvironmentalassessments
(EAs).Plaintiffsthereforealsochallenge,inaccordwiththeAPA,BLMspatternandpractice
ofapprovingindividualdrillingpermitsforviolatingthefundamentalrequirementsofNEPAand
theNHPA.
2. BLMspiecemealapprovalofdrillingpermitsisproblematicgiventhepracticeof
hydraulicfracturing,orfracking,thatisusedinandenablesthedrillingofoilandgaswells
targetingMancosShale.TheagencyhasrecognizedthatthecurrentResourceManagementPlan
andFinalEnvironmentalImpactStatement(2003RMP/EIS)neveranticipatedoranalyzedthe
impactsofthetypeofhorizontalfrackingtechnologynecessaryfordevelopingMancosShale,
which,inturn,requiresanEISlevelplanamendmentforcompleteanalysis.BLMis,onthis
basis,preparinganRMPAmendmentandEISforhorizontaldrillingandfrackingintheMancos
Shale(MancosRMPA/EIS)toanalyzetheimpactsofdevelopingMancosShalethathavethus
farbeenignored.Nevertheless,BLMhasbegunfullscaledevelopmentofMancosShaleandhas
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authorizedatleast130individualdrillingpermitsforextractionofcrudeoilbypurportingtotier
totheinoperative2003RMP/EIS.
3. HorizontaldrillingandmultistagefrackingoftheMancosShaleimplicateoiland
gasdevelopmentimpactsthatareverydifferentinbothkindandintensityfrompreviously
employeddrillingtechniquesintheSanJuanBasin.Moreover,horizontaldrillingandmulti
stagefrackinghavealteredtheeconomicsofdrilling,makingit,intheMancosShale,possiblein
thefirstplaceoratleastintensifyingthescaleofreasonablyforeseeabledevelopment.
Fundamentally,thereisgreatriskofsignificantenvironmentalandpublichealthimpactscaused
byhydraulicfrackingandtheintensityofdevelopmentthatsuchfrackingenables,includingthe
contaminationofsurfaceandgroundwatersupplies,theemissionofhazardousairpollutantsand
potentgreenhousegases,aswellasthepotentialtothreatentheareasrichculturalresources.
4. TheSanJuanBasininnorthwesternNewMexicoencompassesoneoftherichest
andmostextensiveprehistoricNativeAmericancommunities,comprisingmorethan100Great
Housesthelargestalonecontainingmorethan400roomstogetherconnectedbyhundredsof
milesofancientceremonialroads.Atthecenterofthis40,000squaremilearealiewell
preserved,thousandyearoldstandingmasonrystructureslocatedintheChacoCultureNational
HistoricalPark,aUnitedNationsWorldHeritageSite.WhiletheChacoCultureNational
HistoricalParkrepresenttheheartoftheseprehistoriccommunities,numerousmasonryGreat
Housesandtheirassociatedculturalsites,aswellasmostoftheancientceremonialroads,lie
welloutsidetheParksboundaries,underscoringtheBasinsbroaderculturalheritage.
5. ThisGreaterChacoAreaisalsohometocontemporary,livingNavajoandother
communitiesthathavebeenheavilyimpactedformorethanacenturybyfederaldevelopmentof
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uranium,coal,oil,andgas.Aslongagoasthe1970s,aNationalAcademyofSciencesreport
dubbedthisareaanditspeopleasanationalenergysacrificezone.Coal,oil,andgas
exploitationisrampantandhasleftaheavyfootprintonthisarid,culturallyrichlandscape.
6. Theareaisalsohometouniquegeology,stunninglandscapes,anddiverseplant
andanimallife,muchofthisonpubliclands.Theseresourcesarethereforehighlyvaluedfrom
anecologicalandnaturalresourceperspective.Thatsaid,contemporarynativecommunities
utilizethistreasuredlandscapeforceremonialandspiritualpractices,andregardtheentire
ancestrallandscapeasculturallysignificant.Indeed,itistheintertwinedecologicalandcultural
aspectsoftheareathatgiverisetoastarkclashbetweentheland,water,air,andpeoplesofthe
SanJuanBasinwithpast,present,andreasonablyforeseeableoilandgasdevelopment.
7. BLMhasbeenlessthantransparentinprovidingthepublicwithadequate
informationtoassessorcommentontheapprovalofMancosShalefrackingpermits.Tothebest
oftheCitizensGroupsknowledge,BLMhasapprovedatleast130APDsthatauthorize
horizontaldrillingandfrackingandassociatedinfrastructureintheMancosShale.Theagency
has,however,notprovidedinformationnecessarytodeterminethenumberofapprovedAPDs
thathavethusfarresultedingrounddisturbingactivity.
8. BLMsapprovalofdrillingpermitsintheBasinandtheagencysconsequent
violationsofNEPAandtheNHPAarepremisedonseveralagencytransgressionsincludingthe
agencysfailureto:
a. CompletetheMancosRMPA/EISpriortoauthorizingdrillingpermits
targetingMancosShale,orSupplementthe2003RMP/EISbasedon
significantnewcircumstancesandinformation
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b. PrepareanEISorprovideaconvincingstatementofreasonstojustifyits
decisiontoforegoanEISpriortoauthorizingnumerousdrillingpermits
targetingtheMancosShale
c. Takeahardlookatthedirect,indirect,andcumulativeimpactsof
developingtheMancosShaleand
d. ConsultwiththeNewMexicoStateHistoricPreservationOfficerandthe
publicovertheimpactsoffrackingonhistoricandculturalproperties.
9. Further,BLMsAPDapprovalsunlawfullyprejudiceandlimitthechoiceof
alternativesfortheagencyspendingrevisiontheMancosRMPA/EIS.Byapprovingthe
constructionofdrillinginfrastructurewithintheSanJuanBasin,BLMprejudicesandlimitsthe
efficacyofmitigationmeasures,includingcontrolsonthetiming,pace,andlocationof
development,toprotecttheBasinsecologicalandculturalresources,aswellascontrolsthat
ameliorateclimate,air,water,andpublichealthimpacts.
10. CitizenGroupsseekdeclaratoryreliefagainsttheBLMinaccordwiththeAPA
fortheirunlawfulapprovalof,andunlawfulpatternandpracticeofapproving,drillingpermits
targetingtheMancosShaleinviolationofNEPAandtheNHPA,andthosestatutes
implementingregulationsandpolicies,asallegedherein.CitizenGroupsalsoseekinjunctive
reliefprohibiting,pendingcompletionoftheMancosShaleRMPA/EIS:
a. DevelopmentofapprovedAPDstargetingMancosShaleforthosepermitswhere
grounddisturbingactivityhasnotyetcommenced
b. DevelopmentofapprovedAPDsthathavebeendrilledandshutinbutnotyet
completed
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c. Approvalofnewwellsandoilandgasdevelopmentinfrastructuretargetingor
enablingMancosShaledevelopmentand
d. OthersuchreliefthattheCitizenGroupsseektoprotectagainstoilandgas
developmentimpacts.
11. Iftheyprevail,CitizenGroupswillseekanawardofattorneysfees,costs,and
otherexpensespursuanttotheEqualAccesstoJusticeAct,28U.S.C.2412.
JURISDICTION&VENUE
12. JurisdictionisproperinthisCourtpursuantto28U.S.C.1331becausethiscivil
actionarisesunderthelawsoftheUnitedStates.
13. Thisactionreflectsanactual,present,andjusticiablecontroversybetweenthe
CitizenGroupsandtheFederalDefendantstheCitizenGroupsandtheirmemberswillsuffer
adverseandirreparableinjuriesinfacttotheirlegallyprotectedinterestsintheenvironmental
andculturalresourcesifBLMcontinuestoviolatefederallawsasallegedherein.Theseinjuries
areconcreteandparticularizedandfairlytraceabletoBLMschallengeddecisions,providingthe
requisitepersonalstakeintheoutcomeofthiscontroversynecessaryforthisCourtsjurisdiction.
14. Therequestedreliefisauthorizedby28U.S.C.2201,2202and5U.S.C.
705,706.
15. Therequestedreliefwouldredresstheactual,concreteinjuriestotheCitizen
GroupscausedbytheBLMsfailuretocomplywithdutiesmandatedbyNEPA,NHPA,andthe
regulationspromulgatedpursuanttothesefederalstatutes.
16. Thechallengedagencyactionsarefinalandsubjecttojudicialreviewpursuantto
5U.S.C.702,704,&706.
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17. CitizenGroupshaveexhaustedanyandallavailableandrequestedadministrative
remedies.
18. VenueinthisCourtisproperpursuantto28U.S.C.1391(e).Asubstantialpart
oftheeventsandomissionsgivingrisetothethiscaseoccurredinBLMofficeslocatedinNew
Mexico,andthiscaseinvolvespubliclandsandenvironmentalinterestslocatedinNewMexico.
PARTIES
19. PlaintiffDINCITIZENSAGAINSTRUININGOURENVIRONMENT(DIN
C.A.R.E.)isanallNavajoorganizationcomprisedofafederationofgrassrootscommunity
activistsintheFourCornersregionofArizona,NewMexico,andUtahwhostrivetoeducateand
advocatefortheirtraditionalteachingsderivedfromDinFundamentalLaws.DINC.A.R.E.s
goalistoprotectalllifeinitsancestralhomelandbyempoweringlocalandtraditionalpeopleto
organize,speakout,andassureconservationandstewardshipoftheenvironmentthroughcivic
involvement,engagementandoversightindecisionmakingprocessesrelatingtotribal
development,andoversightofgovernmentagenciescompliancewithallapplicable
environmentallaws.DINC.A.R.E.memberslive,use,andenjoytheareasandlandscapes,
includingculturalresourcesinthearea,thatareaffectedandharmedbyoilandgasdevelopment
authorizedbyDefendants.DINC.A.R.E.bringsthisactiononitsownbehalfandonbehalfof
itsadverselyaffectedmembers.
20. PlaintiffSANJUANCITIZENSALLIANCEisagrassrootsorganization
dedicatedtosocial,economic,andenvironmentaljusticeintheSanJuanBasin.SanJuan
CitizensAllianceorganizesSanJuanBasinresidentstoprotectourwaterandair,ourpublic
lands,ourruralcharacter,andouruniquequalityoflifewhileembracingthediversityofour
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regionspeople,economy,andecology.Withlongstandingeffortstoaddresstheimpactsofoil
andgasdevelopmenttotheseinterests,SanJuanCitizensAllianceisdeeplyconcernedthat
impactsfromthecontinueddevelopmentofourpubliclandswillirreparablyharmthese
treasuredlandscapes.SanJuanCitizensAlliancememberslivein,use,andenjoytheareasand
landscapesthatareaffectedbyoilandgasdevelopmentauthorizedbyDefendants.SanJuan
CitizensAlliancebringsthisactiononitsownbehalfandonbehalfofitsadverselyaffected
members.
21. PlaintiffWILDEARTHGUARDIANSisanonprofitmembershiporganization
basedinSantaFe,NewMexico,withofficesthroughouttheWest.Guardianshasmorethan
65,000membersandactivists,someofwhomlive,work,orrecreateonpubliclandsonandnear
theAPDschallengedherein.Guardiansanditsmembersarededicatedtoprotectingandrestoring
thewildlife,wildplaces,andwildriversoftheAmericanWest.Towardsthisend,Guardiansand
itsmembersworktoreplacefossilfuelswithclean,renewableenergyinordertosafeguard
publichealth,theenvironment,andtheEarthsclimate.
22. PlaintiffNATURALRESOURCESDEFENSECOUNCIL(NRDC)isanon
profitenvironmentalmembershiporganizationwithmorethan299,000membersthroughoutthe
UnitedStates.Approximately3,360ofthesemembersresideinNewMexico.NRDCmembers
useandenjoypubliclandsinNewMexico,includinglandsmanagedbytheBureauofLand
ManagementwithintheFarmingtonFieldOfficeplanningarea.NRDCmembersuseandenjoy
theselandsforavarietyofpurposesincludingrecreation,solitude,andconservationofnatural
resources.NRDChashadalongstandingandactiveinterestintheprotectionofpubliclandsin
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NewMexico,theresponsibledevelopmentofoilandgasresources,andtheprotectionofpublic
healthfromenvironmentalthreats.
23. TheCitizenGroupsmembersuseandenjoytheculturalresources,wildlands,
wildlifehabitat,rivers,streams,andhealthyenvironmentonBLMandotherlandsinNew
Mexicoforhiking,fishing,hunting,camping,photographingsceneryandwildlife,wildlife
viewing,aestheticenjoyment,spiritualcontemplation,religiouspracticesandceremonies,and
engaginginothervocational,scientific,andrecreationalactivities.TheCitizensGroups
membersderiverecreational,inspirational,spiritual,religious,scientific,educational,and
aestheticbenefitfromtheiractivities.TheCitizenGroupsmembersintendtocontinuetouse
andenjoyBLMandotherNewMexicopubliclands,culturalresources,wildlands,wildlife
habitat,rivers,streams,andhealthyenvironmentsfrequentlyandonanongoingbasislonginto
thefuture,includingthisspring,summer,fall,andwinter.
24. TheCitizenGroupsandtheirmembershaveaproceduralinterestinBLMsfull
compliancewithNEPAandtheNHPAsplanninganddecisionmakingprocesseswhen
authorizingcrudeoildevelopmentonpubliclandswithintheSanJuanBasin,andBLMs
attendantdutytosubstantiateitsdecisionsintherecordfortheseauthorizations.
25. Theaesthetic,recreational,scientific,educational,spiritual,religious,and
proceduralinterestsoftheCitizensGroupsanditsmembershavebeenadverselyaffectedand
irreparablyinjuredbytheprocessinwhichBLMhasconductedcrudeoildevelopment
decisionmakingintheSanJuanBasin.Theseareactual,concreteinjuriescausedbyBLMs
failuretocomplywithmandatorydutiesunderNEPAandtheNHPA.Theinjurieswouldbe
redressedbythereliefsought.
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26. DefendantSALLYJEWELListheSecretaryoftheUnitedStatesDepartmentof
theInterior,andisresponsibleformanagingthepubliclands,andresources,andpublicmineral
estateoftheUnitedStates,includinglandsandresourcesinNewMexico,and,inthatofficial
capacity,isresponsibleforimplementingandcomplyingwithfederallaw,includingthefederal
lawsimplicatedbythisaction.
27. DefendantUNITEDSTATESBUREAUOFLANDMANAGEMENTisan
agencywithintheUnitedStatesDepartmentoftheInteriorandisresponsibleformanaging
publiclandsandresourcesinNewMexico,includingfederalonshoreoilandgasresources.In
thismanagerialcapacity,BLMisresponsibleforimplementingandcomplyingwithfederallaw,
includingthefederallawsimplicatedbythisaction.
28. DefendantNEILKORNZEisDirectoroftheBureauofLandManagement,an
agencywithintheUnitedStatesDepartmentoftheInterior,andisresponsibleformanagingthe
publiclands,resources,andpublicmineralestateoftheUnitedStates,includinglandsand
resourcesinNewMexico,and,inthatofficialcapacity,isresponsibleforimplementingand
complyingwithfederallaw,includingthefederallawsimplicatedbythisaction.
STATUTORYBACKGROUND
I. NationalEnvironmentalPolicyAct
29. NEPAisourbasicnationalcharterfortheprotectionoftheenvironment.40
C.F.R.1500.1.Itwasenactedrecognizingthateachpersonshouldenjoyahealthful
environmenttoensurethatthefederalgovernmentusesallpracticablemeanstoassureforall
Americanssafe,healthful,productive,andestheticallyandculturallypleasingsurroundings,and
toattainthewidestrangeofbeneficialusesoftheenvironmentwithoutdegradation,riskto
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healthorsafety,orotherundesirableandunintendedconsequences,amongotherpolicies.42
U.S.C.4331(b).
30. NEPAregulationsexplain,in40C.F.R.1500.1(c),that:
Ultimately,ofcourse,itisnotbetterdocumentsbutbetterdecisionsthatcount.NEPAspurposeisnottogeneratepaperworkevenexcellentpaperworkbuttofosterexcellentaction.TheNEPAprocessisintendedtohelppublicofficialsmakedecisionsthatarebasedonunderstandingofenvironmentalconsequences,andtakeactionsthatprotect,restore,andenhancetheenvironment.
31. AgenciesshallintegratetheNEPAprocesswithotherplanningattheearliest
possibletimetoinsurethatplanninganddecisionsreflectenvironmentalvalues,toavoiddelays
laterintheprocess,andtoheadoffpotentialconflicts.40C.F.R.1501.2.
32. Toaccomplishthispurpose,NEPArequiresthatallfederalagenciespreparea
detailedstatementregardingallmajorfederalactionssignificantlyaffectingthequalityofthe
humanenvironment.42U.S.C.4332(C).Thisstatement,knownasanenvironmentalimpact
statement(EIS),must,amongotherthings,describetheenvironmentalimpactofthe
proposedaction,andevaluatealternativestotheproposal.Id.
33. Todeterminewhetheraproposedactionsignificantlyaffectsthequalityofthe
humanenvironment,andwhetheranEISisthereforerequired,regulationspromulgatedbythe
CouncilonEnvironmentalQuality(CEQ)provideforpreparationofanenvironmental
assessment(EA).BasedontheEA,afederalagencyeitherconcludesitsanalysiswitha
findingofnosignificantimpact(FONSI),ortheagencygoesontoprepareafullEIS.40
C.F.R.1501.4.
34. CEQregulationsprovidethateveryagencyshallpreparesupplementsto
environmentalimpactstatementsiftherearesignificantnewcircumstancesorinformation
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relevanttoenvironmentalconcernsandbearingontheproposedactionoritsimpacts.40C.F.R.
1502.9(c)(1)(ii).
35. NEPAalsorequiresthateveryagencymuststudy,develop,anddescribe
alternativestorecommendedcoursesofactioninanyproposalwhichinvolvesunresolved
conflictsconcerningalternativeusesofavailableresources...42U.S.C.4332(E).CEQ
regulationsprovidethatthealternativesevaluationistheheartoftheenvironmentalimpact
statement.40C.F.R.1502.14.Itshouldsharplydefin[e]theissuesandprovid[e]aclearbasis
forchoiceamongoptionsbythedecisionmakerandthepublic.Id.
36. Federalagenciesmust[m]akediligenteffortstoinvolvethepublicinpreparing
andimplementingtheirNEPAprocedures.40C.F.R.1506.6(a).Tothefullestextentpossible,
agenciesmust[e]ncourageandfacilitatepublicinvolvementindecisionswhichaffectthe
qualityofthehumanenvironment.40C.F.R.1500.2(d).Ataminimum,agenciesmust
[p]rovidepublicnoticeof...theavailabilityofenvironmentaldocumentssoastoinformthose
personsandagencieswhomaybeinterestedoraffected.40C.F.R.1506.6(b).Environmental
documentsincludeEAs,EISs,FONSIs,andnoticesofintentstoprepareand/orconsiderEISs.
40C.F.R.1508.10.TheNEPAregulationsstressthatNEPAproceduresmustinsurethat
environmentalinformationisavailabletopublicofficialsandcitizensbeforedecisionsaremade
andbeforeactionsaretakenandthatpublicscrutiny[is]essentialtoimplementingNEPA.40
C.F.R.1500.1(b).
37. PendingcompletionofanEIS,anagency,interalia,shallnotundertakeinthe
interimanymajorFederalactioncoveredbytheprogramwhichmaysignificantlyaffectthe
qualityofthehumanenvironmentunlesssuchaction:(1)Isjustifiedindependentlyofthe
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program(2)Isitselfaccompaniedbyanadequateenvironmentalimpactstatementand(3)Will
notprejudicetheultimatedecisionontheprogram.Interimactionprejudicestheultimate
decisionontheprogramwhenittendstodeterminesubsequentdevelopmentorlimit
alternatives.40C.F.R.1506.1(c).
II. NationalHistoricPreservationAct
38. TheNHPAseekstoprotectAmericashistoricheritagebyestablishingafederal
statepartnershiptoadministersuchprotectionandbyrequiringthatfederalagenciestakeinto
accounttheimpactsoftheiractionsonhistoricproperties.Carefulcompliancewiththestatutory
andregulatoryrequirementsoftheNHPAassuresthatthelossofhistoricandculturalsitesis
kepttoaminimum,andthatadverseeffectstosuchsitesareadequatelyavoided,minimized,or
mitigated.
39. ThepurposesoftheNHPAareachievedbytheSection106consultation
processthatinvolvesadialoguebetweenaproponentfederalagencysuchasBLMwiththeState
HistoricPreservationOfficer(SHPO),thepublic,andIndianTribes.16U.S.C.470f.
40. TheNHPAimposestherequirementonfederalagenciestotakeintoaccountthe
effect[s]of[their]Undertaking[s]onanydistrict,site,building,structure,orobjectthatis
includedinoreligibleforinclusionintheNationalRegister.16U.S.C.470f.
41. TheNHPAregulationsrequirethatafederalagencyfirstestablishwhethera
proposedactionisanundertakingsubjecttoSection106consultationand,ifso,whetheritisthe
typeofactionlikelytoaffecthistoricproperties.36C.F.R.800.3.
42. IfanagencyactionisanundertakingsubjecttoSection106consultation,thefirst
stepintheconsultationprocessisfortheagencytodefinetheAreaofPotentialEffects(APEs)
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fortheaction,whichtheNHPAregulationsdefineas:
thegeographicareaorareaswithinwhichanundertakingmaydirectlyorindirectlycausealterationsinthecharacteroruseofhistoricproperties...Theareaofpotentialeffectsisinfluencedbythescaleandnatureofanundertakingandmaybedifferentfordifferentkindsofeffectscausedbytheundertaking.
36C.F.R.800.16(d).
43. Thefederalagencymustmakeareasonableandgoodfaithefforttoindentify
historicandculturalpropertieswithintheAreaofPotentialEffects.36C.F.R.800.4(b)(1).
44. ThefederalagencyisrequiredtoconsultwithIndianTribesandtheNew
MexicoSHPOastotheresultsofitsidentificationefforts,howtheundertakingmightadversely
affecthistoricandculturalsiteswithintheAPEs,andresolutionofadverseeffectstohistoricand
culturalsites.36C.F.R.800.4(b),800.5(a),800.6(a).
45. Thefederalagencymustanalyzealladverseeffectstohistoricandculturalsites
withintheAPEsincludingreasonablyforeseeableeffectscausedbytheundertakingthatmay
occurlaterintime,befartherremovedindistanceorbecumulative.36C.F.R.800.5(a)(1).
Adverseeffectsarenotlimitedtophysicaldestructionofahistoricorculturalsitebutalso
include,interalia,[c]hangeofthe...physicalfeatureswithinthepropertyssettingthat
contributetoitshistoricsignificanceandintroductionofvisual,atmosphericoraudible
elementsthatdiminishtheintegrityofthepropertyssignificanthistoricalfeatures.Id.at
800.5(a)(2)(v).
46. AFederalagency,likeBLM,canestablishaprogramalternativeforcomplying
withtheNHPASection106consultationrequirementslistedinSubpartBoftheregulation.36
C.F.R.800.3(a)(2),800.14.Indoingso,however,BLMmustconsultwithanumberof
entitiesincludingtheNewMexicoSHPO,IndianTribes,andtheAdvisoryCouncilonHistoric
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Preservationregardingtheproceduresintheprogramalternative,mustseekpublicinputonthe
programalternative,andmustgetapprovalfromtheAdvisoryCouncilonHistoricPreservation
tousetheprogramalternativeinlieuoftheSubpartBregulations.
47. BLMhasbeenapprovedtheAdvisoryCouncilonHistoricPreservationtousea
programalternativeintheSanJuanBasin.KnownastheProtocolAgreementbetweenBLM
andtheNewMexicoSHPO,BLMmayusethealternativeproceduresoutlinedintheProtocolto
complywiththeSection106consultationrequirements.However,BLMcannotusetheProtocol
AgreementandmustinsteadmeetitsSection106consultingrequirementspursuanttoSubpart
Boftheregulationsforanyundertakingsubjecttounusualpublicattentionorinvolving
stronglyopposingviewpoints.
III. AdministrativeProcedureAct
48. TheAPAprovidesarighttojudicialreviewforanypersonsufferinglegalwrong
becauseofagencyaction.5U.S.C.702.ActionsthatarereviewableundertheAPAinclude
finalagencyactionsforwhichthereisnootheradequateremedyinacourt.Id.
49. UndertheAPA,areviewingcourtshall,interalia,holdunlawfulandsetaside
agencyaction...foundtobearbitrary,capricious,anabuseofdiscretion,orotherwisenotin
accordancewithlaw.5U.S.C.706(2)(A).Agencyactionsmayalsobesetasideinother
circumstances,suchaswheretheactioniswithoutobservanceofprocedurerequiredbylaw.5
U.S.C.706(2)(B)(F).
STATEMENTOFFACTS
I. EnvironmentalImpactsofFrackingintheMancosShale
50. Hydraulicfracturing,orfracking,isanoilandgasdrillingstimulation
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techniqueinvolvingthehighpressureinjectionoflargequantitiesofwater,proppants(typically
sand),andchemicaladditivesintothewellboretofracturethetargetedgeologicformationsto
enhancethereleaseofoilandnaturalgas.Somevariationofoilandgasstimulationhasbeen
usedintheSanJuanBasinsincethe1950s.However,theseearlystimulationtechniquesare
vastlydifferentfromthetypeoflargevolumemultistagefrackingtechniquescurrently
employed.DespitethislonghistoryoffrackingintheSanJuanBasin,BLMscurrent2003RMP
failstomention,letaloneanalyzeormitigate,thepotentialdirect,indirect,orcumulative
impactsofhydraulicfracturing.
51. AsrecentlyasBLMs2001reasonablyforeseeabledevelopmentscenario
(RFD),theagencystatedthathorizontalfrackingistheoreticallypossiblebutnotcurrently
appliedintheSanJuanBasinduetopooreconomics.Overthelast10years,advancesinmulti
stageandmultizonefrackinghaveenableddevelopmentthatpreviouslywasuneconomic,
includingintheSanJuanBasin.Specifically,improvementsandinnovationsinhorizontal
drillingtechnologyandmultilateralhydraulicfracturinghaveenhancedtheeconomicsof
developingtheMancosShale.
52. Hydraulicfracturingofhorizontalshalewellsisgenerallyperformedinstages.
Laterallengthsinhorizontalwellsfordevelopmentmayrangefrom1,000feettomorethan
5,000feet.Duringthefrackingprocess,withinthehorizontalportionofthewellbores,aseriesof
chargesaresetthroughtheproducingintervaltoperforatetheproductionlinerandcasingto
createsmallfracturesintheformation.Afrackingfluidmixtureistheninjectedintothe
formation,athighpressure,tocreatecracksorfractures.Thefluidsopenorenlargefracturesthat
typicallyextendseveralhundredfeet,butcanextendmorethan1,000feetawayfromthewell
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bore.
53. Inthefirstseveraldaystoweeksafterfracking,thewellpressureisreleasedanda
portionofthefrackingfluidknownasflowbackreturnstothesurfaceofthewellbore.
Overlongertimeperiods,waternaturallypresentinthetargetedformationknownas
producedwatercontinuestoflowthroughthewelltothesurface.Theflowbackand
producedwatertypicallycontainstheinjectedchemicalsaswellasnaturallyoccurring
substancessuchasbrines,heavymetals,radionuclides,andhydrocarbons.Verysmallquantities
ofsometoxicfrackingchemicals,suchasbenzene,arecapableofcontaminatingmillionsof
gallonsofwater.
54. Horizontalfrackingalsorequiresthedevelopmentofnewroads,gathering
pipelinesandotherinfrastructure.Moreover,eachwelltypicallyrequiresthousandsoftrucktrips
totransportthewater,nitrogen,andchemicalsnecessaryforwellcompletionandsubsequent
disposalofflowbackandproducedwater.
55. Thereareanumberofsignificantenvironmental,cultural,andhumanhealth
impactsassociatedwithhorizontalfracking.BLMisrequiredtoprovideahardlookanalysisof
thesedirect,indirect,andcumulativeimpactsbeforethereareanyirreversibleandirretrievable
commitmentsofresourceswhichwouldbeinvolvedintheproposedactionshoulditbe
implemented.42U.S.C.4332(2)(C)(v)seealso40C.F.R.1501.2,1502.5(a).
56. BLMhasrecognizedthat[a]sfullfielddevelopmentoccurs[asaresultofnew
horizontaldrillingtechnology],especiallyintheshaleoilplay,additionalimpactsmayoccurthat
previouslywerenotanticipatedinthe[2001]RFDoranalyzedinthecurrent2003RMP/EIS,
whichwillrequireanEISlevelplanamendmentandrevisionoftheRFDforcompleteanalysis
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oftheMancosShale/GallupFormation.79Fed.Reg.10,548(Feb.25,2014).Notably:
a. The2001RFDisnotaNEPAorenvironmentaldocumentasthatterm
isdefinedbyNEPA(see40C.F.R.1508.10)and
b. The2003RMP/EISdidnottakeahardlookatthespecificimpactsofoil
andgasdevelopmentoftheMancosShale,orconsideralternatives
specifictotheMancosShaleformationandtothesurfaceenvironment
andpeoplelivingabovetheMancosShaleformation.
57. Frackingfluidisaconglomerationofvariouschemicalsandcompounds,manyof
whicharehighlytoxic.AlthoughBLMpointsoutthatchemicalstypicallymakeupjust1%of
thetotalvolumeofthefracturingfluid,whenmillionsofgallonsofwaterarebeingused,the
amountofchemicalsperfrackingoperationisverylarge.Forexample,theEPAhasnotedthat
fora3milliongallonfracturingoperation,15,000to60,000gallonsofchemicaladditiveswould
generallybeused.Manyofthesefrackingfluidchemicalsareknowntobetoxictohumansand
wildlife,andseveralareknowntocausecancer.Toxicsubstancesusedinfrackinginclude
petroleumdistillatessuchaskeroseneanddieselfuel(whichcontainbenzene,ethylbenzene,
toluene,xylene,naphthaleneandotherchemicals)polycyclicaromatichydrocarbonsmethanol
formaldehydeethyleneglycolglycolethershydrochloricacidandsodiumhydroxide.
58. Giventheuseofsuchchemicalsandtheirpresenceinflowbackandproduced
water,thecontaminationofdomesticandagriculturalwatersuppliesfromhydraulicfracturingis
aseriousconcern.Moreover,ifthewellboreisnotproperlysealed,cased,oritsintegrityis
otherwisecompromised,chemicalsandothertoxicsubstancescanescapeastheymovethrough
thewell.Thefrackingfluidcanalsomigrateunderground,throughnaturalandinducedfractures,
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andleadtocontaminationofgroundwater.Activeandabandonedwellscanalsoserveas
pathwaysforthemigrationofcontaminantsintowatersources.Spillsoffrackingfluidsincluding
theflowbackcanoccuronthesurfaceduringstorage,transportationand/ordisposal.Flowback
andproducedwaterbroughttothesurfacealsocontainvolatileorganiccompounds(VOCs)
andotherHazardousAirPollutants(HAPs),whichvaporizeandcontributetoairpollution.
59. AccordingtotheEPA,theoilandgasindustryisthelargestindustrialsourceof
emissionsofVOCs,agroupofchemicalsthatcontributetotheformationofgroundlevelozone.
Theseemissionsincludeairtoxicssuchasbenzene,ethylbenzene,andnhexane,whichare
pollutantsknown,orsuspectedofcausingcancerandotherserioushealtheffects.TheEPA
reportsthattheoilandgasindustry:emits2.2milliontonsofVOCs,130,000tonsofairtoxics,
and16milliontonsofgreenhousegases(methane)eachyear(40%ofallmethaneemissionin
theU.S.).TheindustryisoneofthelargestsourcesofVOCsandsulfurdioxideemissionsinthe
UnitedStates.
60. Inrecentyears,theSanJuanBasinhasseenelevatedmonitoredlevelsforthe8
hourozoneNationalAmbientAirQualityStandard(NAAQS).Exposuretoozoneisaserious
concernasitcancauseorexacerbaterespiratoryhealthproblems,includingshortnessofbreath,
asthma,chestpainandcoughing,decreasedlungfunctionandevenlongtermlungdamage,all
ofwhichcancontributetoprematuredeaths.Thereisnoroomforgrowthinemissionsthat
contributetotheseharmfullevelsofozonepollutionintheSanJuanBasin,inparticularnitrogen
oxides(NOX)andVOCs.Anyincreaseinemissionsofozoneprecursorswillexacerbatethe
negativehealtheffectsofozoneintheregion.TheexpansionofdevelopmentintotheMancos
ShalehasthepotentialtosignificantlyaddtoemissionsofNOXandVOCs.SanJuanCounty,
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NewMexico,hasaparticularlyvulnerablepopulationwithhighincidenceofrespiratorydisease:
SanJuanCountyhasahigherincidenceofchroniclowerrespiratorydisease(CLRD)comprisedofchronicbronchitis,asthma,andemphysemacomparedtoNewMexicoortherestoftheUnitedStates.AnotherstudyfoundthatelevatedlevelsofozoneinSanJuanCountywerelinkedtoincidenceofasthmarelatedmedicalvisits.ThestudyfoundthatSanJuanCountyResidentsare34percentmorelikelytohaveasthmarelatedmedicalvisitsafter20partsperbillionincreasesinlocalozonelevels.
61. OnDecember17,2014,EPApublishedaproposaltoreviseNAAQSforozoneto
65to70partsperbillion(ppb)fromthecurrent75ppb.79Fed.Reg.75234(Dec.17,2014).
Thisdecisionwasdrivenbysignificantrecentscientificevidencethatthecurrentstandardof75
ppbdoesnotadequatelyprotectpublichealthandthatozoneconcentrationsaslowas72ppbcan
causerespiratoryharmtoyoung,healthyadultsfollowingexposureforlessthaneighthours.
UnderEPAsproposedrevisedozonestandard,SanJuanCountywouldbeinnonattainmentof
theNAAQSstandard.
62. Fineparticulatematter(PM2.5orparticleswithadiameterof2.5micrometersor
less)isanotherpotentialsourceofmajorhealthimpactsintheSanJuanBasin,ofparticular
concern,here,becauseofincreasedtrucktrafficonunpavedroadsandthecreationoffugitive
dust.PM2.5canbecomelodgeddeepinthelungsorcanenterthebloodstream,worseningthe
healthofasthmaticsandevencausingprematuredeathinpeoplewithheartandlungdisease.
EvenPM2.5concentrationslowerthanthecurrentNAAQSareaconcernforhumanhealth.
63. Evenwhenthetargetofdevelopmentisoil,hydraulicfracturingresultsinthe
releaseofassociatedgasproduction,predominantlymethane.Astheprimaryingredientof
naturalgas,thereleaseofmethane,whetherthroughvented,flared,orfugitiveemissions,results
inthelossofanenergyresourcethatcouldotherwisebeusedbyhomes,schools,andbusinesses.
Associatedgasiscommonlywastedthroughventingorflaring,aswellasfugitiveleaks,
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contributingsignificantlytoglobalwarming.TheNobelprizewinningIntergovernmentalPanel
onClimateChange(IPCC)hasidentifiedtheheattrappingeffectofmethaneorglobal
warmingpotential(GWP)as34timesmorepotentthancarbondioxideovera100year
periodand86timesmorepotentovera20yearperiod,underscoringtheimportanceofkeeping
methaneoutoftheatmosphere.Forfossilmethane,thewarmingimpactisevengreatermethane
is36timesmorepotentthancarbondioxideovera100yearperiodand87timesmorepotent
overa20yearperiod.
64. InSeptember2014,scientistsfromtheUniversityofMichigan,NASAsJet
PropulsionLaboratory,LosAlamosNationalLaboratoryandCaliforniaInstituteofTechnology
publishedtheresultsofastudyofatmosphericmethaneconcentrationsintheU.S.Thestudy
analyzedmethaneconcentrationsataregionalscaleusingbothspacebasedandearthbased
measurements.Thisstudyidentifiedwhathasbeendescribedasamethanehotspotoverthe
SanJuanBasin.TotaloilandgasmethaneemissionsintheSanJuanBasinthathavebeen
reportedtotheU.S.EPAGreenhouseGasReportingProgramwere330,000metrictonsfor
2012.Reportedmethaneemissionshavegrownbyover10%withatotalfor2013ofalmost
370,000metrictons.Thehotspotstudyconductedsimulationsofmethaneemissionsforthe
regionfor2012toestimatewhatemissionsratewouldcorrespondtoobservedatmospheric
methaneconcentrations.Thesimulationsresultedinaveragemethaneemissionsfromallsources
intheSanJuanBasinof590,000metrictonsperyear.Thislevelofemissionsrepresentsan
exceptionallylargeshareoftotalnaturalgasmethaneemissionsidentifiedintheU.S.
GreenhouseGasInventory.TheexpansionofdevelopmentintotheMancosShalehasthe
potentialtosignificantlyincreasemethaneemissionsintheSanJuanBasin.
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65. HydraulicfracturingcompletionsintheMancosShalearetypicallydesignedwith
nitrogenfoam.Whilenitrogenfoamfrackingcanminimizewaterusageandimprovefluid
recoveries,itnecessarilyrequiresflaringandthuscontributestoairqualityimpactsand
greenhousegasemissions.Theuseofnitrogenfoaminthefrackingprocessinitiallyresultsin
upwardsof60%nitrogencontentinproducedgas,whichmustbeflaredforanaverageof6090
daysuntilthenitrogencontentisreducedto10%orlessbeforethegascanenterapipeline.
Whenthetargetofdevelopmentisoil,flaringcantakeplaceformuchlonger.Theflaringof
producedgasnotonlywastesimportantfederalmineralresourcesthatcouldotherwisebeusedto
heatourhomes,butalsoreducesroyaltypaymentstostateandfederalgovernmentswhile
significantlycontributingtothegreenhousegasemissions.Thehigherpermeabilityofnitrogen
gasusedinfrackingalsoresultsinagreaterlikelihoodofcontaminationtowaterresources.
66. MancosShaledevelopmentisresultinginsignificantair,visual,andauditory
impactstotheSanJuanBasinshistoricandculturalsites.
67. MancosShaledevelopmentisaffectingtheareasviewshedinanumberofways.
Ozoneisthemaincomponentofsmog.Gasflaresfromfrackingcreatelightpollutionwhich,
whencombinedwithsmog,interferewiththeboththeunobstructedviewshedfromChaco
CultureNationalHistoricalParkandwiththeclarityofnightskies.ChacoCultureNational
HistoricalParkwasrecentlydesignatedanInternationalDarkSkyPark,oneof20inthe
world,foritsnearpristinenightskies,whichareimportanttonocturnalecosystemsandthe
visitorexperience.ThousandsvisittheParkeachyeartoparticipateintheChacoNightSky
Program.ThesmogandotherairpollutioncreatedbyfrackingcouldshroudtheParkand
surroundinglandscapeinanoticeablehazeandobstructthenaturalviewwithindustrialdrillrigs
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andflaring.
68. Bothfrackingandthelaterinjectionoffrackingwastewatercaninduce
earthquakeswhenpressurizedliquidisinjectedintowells.Theseearthquakescoulddamageany
numberofstandingpueblowallsremainingintheParkoratotherprehistoricandhistoricsites
withintheSanJuanBasin.
II. BLMsOilandGasPlanningandManagement
69. BLMmanagesonshoreoilandgasdevelopmentthroughathreephaseprocess.
Eachphaseisdistinct,servesdistinctpurposes,andissubjecttodistinctrules,policies,and
procedures.
70. OilandgasdevelopmentisamultipleusemanagedinaccordwiththeFederal
LandPolicyandManagementAct(FLPMA),43U.S.C.1701etseq.FLPMA,in43U.S.C.
1732(b),providesthat,[i]nmanagingthepubliclands,BLMshall,byregulationor
otherwise,takeanyactionnecessarytopreventunnecessaryorunduedegradationofthelands.
BLM,in43U.S.C.1701(a)(8),furtherprovidesthatBLMmustalsomanagethepubliclands:
[I]namannerthatwillprotectthequalityofscientific,scenic,historical,ecological,environmental,airandatmospheric,waterresource,andarcheologicalvaluesthat,whereappropriate,willpreserveandprotectcertainpubliclandsintheirnaturalcondition,thatwillprovidefoodandhabitatforfishandwildlifeanddomesticanimalsandthatwillprovideforoutdoorrecreationandhumanoccupancyanduse.
71. Inthefirstphaseofoilandgasdevelopment,BLMpreparesaResource
ManagementPlan(RMP).RMPsarepreparedinaccordancewithFLPMAandFLPMAs
planningregulations,43C.F.R.1600etseq.,withadditionalguidancefromBLMsLandUse
PlanningHandbook(H16011)(hereafterBLMHandbook).AnRMPprojectspresentand
futureuseofpubliclandsandtheirresourcesbyestablishingmanagementpriorities,aswellas
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guidingandconstrainingBLMsimplementationstagemanagement.Withrespecttofluid
mineralsleasingdecisions,theRMPdetermineswhichlandscontainingfederalmineralswillbe
opentoleasingandunderwhatconditions.
72. UnderlyingBLMsassumptionsregardingthepaceandscopeoffluidminerals
developmentforthedurationoftheRMPisaReasonablyForeseeableDevelopmentScenario
(RFDS).AnRFDSisnotaNEPAorenvironmentaldocumentasthattermisdefinedby
NEPA.40C.F.R.1508.10.
73. TheBLMHandbookprovidesthat[t]hedeterminationwhethertoamendor
reviseanRMPbasedonnewproposals,circumstances,orinformationdependson(1)thenature
ofnewproposals,(2)thesignificanceofthenewinformationorcircumstances,(3)specific
wordingoftheexistinglanduseplandecisions,includinganyprovisionsforflexibility,and(4)
thelevelanddetailoftheNEPAanalysis.Ayesanswertoanyofthesequestionssuggeststhe
needtorevisitexistingdecisionsand/ortheNEPAanalysis.
74. BLMisfurtherrequiredtosupplementitsRMP/EISiftheagencymakes
substantialchangesintheproposedactionthatarerelevanttoenvironmentalconcernsorthere
aresignificantnewcircumstancesorinformationrelevanttoenvironmentalconcernsandbearing
ontheproposedactionoritsimpacts.40C.F.R.1502.9(c)(1)(i),(ii).
75. Inthesecondphaseofoilandgasdevelopment,BLMidentifiestheboundaries
forlandstobeofferedforsaleandproceedstosellandexecuteleasesforthoselandsthrougha
leasesale.
76. Leasesaresoldinaccordancewith43C.F.R.3120etseq.,withadditional
agencyguidanceoutlinedinBLMInstructionMemorandum(IM)No.2010117,OilandGas
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LeasingReformLandUsePlanningandLeaseParcelReviews(hereafterLeasingReforms).
77. Afteraleaseisissued,BLMmayimposeconditionsofapproval(COAs)that
aredelimitedbythetermsandconditionsofthelease.
78. Thethirdphaseofoilandgasdevelopmentoccursoncealeaseisissued,where
thelesseeisrequiredtosubmitanapplicationforpermittodrill(APD)forapprovalbyBLM
priortodrilling.
79. NEPAallowsBLMtotieroilandgasdecisionmakingattheAPDphaseto
analysiscoveredinabroaderRMP/EIS.40C.F.R.1508.28.Wherespecificissuesin
subsequentoilandgasdecisionmakingprocessarenotcoveredintheRMP/EIS,theagency
cannottiertotheRMP/EIS.Inthatcase,asitespecificNEPAanalysismustbepreparedwhich
includesanalysisofrelevantimpacts.
80. TheBLMHandbookoffersguidanceregardingtheagencysdecisionmaking
processatthisfinalstageofoilandgasdevelopment,andprovidesthat:
uponreceiptofaproposaltodevelopanoilandgasfield,theBLMwouldevaluatetheproposalforconformancewiththeRMP.IftheproposalisconsistentwiththereasonablyforeseeabledevelopmentanalyzedintheRMP/EISandtheproposalisconsistentwiththeRMPdecisions,changestotheRMP/EISareprobablynotnecessary.Inthisinstance,theBLMwouldworkwiththeleaseholderstoobtainappropriatesitespecificinformation,thenprepareanactivitylevelEAorEIStoapprovesomeorallofthewellsinthefieldandsetthestageforsubsequentapplicationforpermittodrillapprovals.....................................................................................................................................IftheproposalexceedsthereasonablyforeseeabledevelopmentanalyzedinthecurrentRMP/EIS,anewreasonablyforeseeabledevelopmentscenarioandNEPAanalysissupplementingtheRMP/EISwouldbewarranted.IftheproposalexceedsandissubstantiallydifferentfromthereasonablyforeseeabledevelopmentanalyzedintheRMP/EIS,andthenewNEPAanalysiscouldreasonablybeexpectedtoresultinchangestoRMPdecisions,aplanamendmentmayalsobewarranted.
III. BLMs2003ResourceManagementPlanand2001ReasonablyForeseeable
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DevelopmentScenario
81. In2001,BLMreleaseda20yearReasonablyForeseeableDevelopmentScenario
(2001RFDS)tosupporttheagencysdecisionmakingforthethenpendingResource
ManagementPlan(2003RMP)fortheFarmingtonFieldOffice.
82. WhileBLMusedthe2001RFDSinthe2003RMPdecisionmakingprocessto
projectfluidmineraldevelopmentfortheNewMexicoportionoftheSanJuanBasin,theRFDS
isnotaNEPAdocumentsubjecttopubliccommentanddoesnotprovideanyanalysisof
environmentalimpactsfortheprojecteddevelopment.ThegoaloftheRFDSwassimplyto
determinethesubsurfacedevelopmentsupportedbygeologicalandengineeringevidence,and
tofurtherestimatetheassociatedsurfaceimpactofthisdevelopmentintermsofactualwells
drilled.
83. WithrespecttodevelopmentoftheMancosShale,the2001RFDSprovided:
existingMancosShaleandGallupSandstonereservoirsareapproachingdepletionandare
marginallyeconomic.Mostarenotcurrentlyconsideredcandidatesforincreaseddensity
developmentorfurtherenhancedoilrecoveryoperations.Itisanticipatedthatmany
Mancos/GallupwellswillneedtobepluggedwithinthetermofthisRFD.
84. The2001RFDSmentionedhorizontaldrillingasapossibilitybutultimately
dismisseditasnotfeasible:
HorizontaldrillingispossiblebutnotcurrentlyappliedintheSanJuanBasinduetopoorcosttobenefitratio.Ifhorizontaldrillingshouldproveeconomicallyandtechnicallyfeasibleinthefuture,thenextadvancementinhorizontalwelltechnologycouldbedrillingmultilateralsorhydraulicfracturinghorizontalwells.Thesetechniquesarecurrentlycomplexandcostly,andthereforetypicallyinappropriateformostonshoreU.S.reservoirs.Comprehensiveengineeringandgeologicresearchwillberequiredinthenearfutureinorderforthesetechniquestobecomeviablewithinthe20yeartimeframeanticipatedby
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thisRFD.
85. The2001RFDSdidconsiderthepossibilityofproductionintoMancosShale,but
statedthatsuchdevelopmentwouldlikelybeachievedthroughadditionofbehindpipereserves
innewandexistingDakotawellsratherthandrillingofnewMancosspecificwells,concluding
that,overthe20yearlifeofthe2001RFDSitwasprobablethat300explorationand
developmentwellstargetingMancosShale/GallupSandstonewouldbedrilledusing
conventionalverticaldrillingtechniques.
86. TheprospectsofdevelopingtheMancosShalewassoremotethatthe2003
RMP/EISfailedtoquantifyortoanalyzethisdevelopmentaltogether,letaloneconsider
alternativestoassesswhetherandhowthisdevelopmentshouldproceed.Infact,nowhereinthe
2003RMP/EISdoesBLMevenmentiontheMancosShale.Nordoesthe2003RMP/EIS
mentionoranalyzethetypeofhorizontaldrillingandhydraulicfracturingtechnologynecessary
todevelopMancosShale.Thepublicthereforehadnoopportunitytoparticipateinthe2003
RMP/EISprocesstounderstandwhetherandhowtheMancosShalewouldbedeveloped,orto
provideinputtohelpshapewhetherandhowtheMancosShalewouldbedeveloped.
IV. BLMsPendingRMPAmendmentandEIStoAddressFrackingofMancosShale
87. OnFebruary25,2014,BLMpostedaFederalRegisterNoticeofIntenttoprepare
anRMPAmendmentandEIS(MancosRMPA/EIS)fortheFarmingtonFieldOffice,79Fed.
Reg.10,548(Feb.25,2014),whichprovidedinpart:
TheRMPamendmentisbeingdevelopedinordertoanalyzetheimpactsofadditionaldevelopmentinwhatwaspreviouslyconsideredafullydevelopedoilandgasplaywithintheSanJuanBasininnorthwesternNewMexico.
Subsequentimprovementsandinnovationsinhorizontaldrillingtechnologyandmultistagehydraulicfracturinghaveenhancedtheeconomicsofdevelopingthis
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[MancosShale/GallopFormation]stratigraphichorizon.
Asfullfielddevelopmentoccurs,especiallyintheshaleoilplay,additionalimpactsmayoccurthatpreviouslywerenotanticipatedintheRFDoranalyzedinthecurrent2003RMP/EIS,whichwillrequireanEISlevelplanamendmentandrevisionoftheRFDforcompleteanalysisoftheMancosShale/GallupFormation.
88. OnoraboutMay28,2014,CitizenGroupssubmittedscopingcommentstothe
agencyregardingtheMancosRMPA/EIS.Thesescopingcommentsincludedextensivetechnical
information,reports,andlegalanalysisregardingcriticalresources,issues,andalternatives
necessaryforconsiderationintheagencysdecisionmakingprocess.
89. Amongtheissuesraised,CitizenGroupsidentifiedtheagencysdutytosuspend
oilandgasleasinganddevelopmenttargetingtheMancosShalependingcompletionofthe
MancosRMPA/EIS,identifyingtheinherentprejudiceandlimitationofalternativestothe
ultimatedecisionthatwouldresultfromsuchaction.
90. CitizenGroupsfurtheridentifiedtheagencysrequirementtotakeahardlook
atthedirect,indirect,andcumulativeimpactsofMancosShaledevelopmentandtheneedto
considerimpactstocertainresourcevalues,includingclimatechange,methaneemissionsand
waste,hydraulicfracturing,waterresources,humanhealth,andlivingcommunities.
91. OnoraboutOctober27,2014,CitizenGroupssubmittedtoBLMsupplemental
commentsontheMancosRMPA/EISandasecondrequestforamoratoriumregardingthe
agencysongoingapprovalofAPDsauthorizinghorizontalfrackingoftheMancosShale.
92. Specifically,CitizenGroupsidentifiedBLMsinabilitytotierprojectlevel
APDanalysestargetingMancosShaletotheunderlying2003RMP/EISbecausethatdocument
failedtoanalyzetheimpactsofsuchdevelopmentortoconsideralternativesdesignedtoassess
whetherandhowthatdevelopmentshouldproceed.CitizenGroupsalsoidentifiedspecific
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deficienciesinthe2003RMP/EISwithrespecttocertainresourcevaluesincludingimpactsto
airquality,greenhousegasemissionsandclimatechange,surfaceandgroundwater,threatened
andendangeredspecies,aswellasculturalresourcesthatprecludetheagencysapprovalof
drillingpermitstargetingMancosShale.
93. OnoraboutDecember18,2014,CitizenGroupsmetwithBLMstafffromthe
NewMexicoStateOfficeandFarmingtonFieldOfficetoreiteratetheirconcernswiththe
agencysongoingapprovalofAPDsforfrackingintheMancosShaleandtoagainrequesta
moratoriumofdrillingauthorizationsuntilBLMcompletedtheMancosRMPA/EIS.
94. InaletterdatedDecember11,2014,anddistributedtoCitizenGroupsatthis
meeting,BLMdeniedtheirrequesttoplaceamoratoriumonapprovalofallnewAPDs
authorizingfrackingintheMancosShale.
V. CurrentFrackingoftheMancosShaleandBLMsApprovalofAPDs
95. InOctober2014,BLMfinalizedanewRFDSforNorthernNewMexico(2014
RFDS)specificallytoestimatethescaleofanticipatedMancosShaledevelopment.
96. The2014RFDSdividestheSanJuanBasinintothreeregionswhenquantifying
oildevelopmentpotentialintheMancosShale/Gallupformations:thehighpotentialregion
(200,500acres),themoderatepotentialregion(211,900acres),andthelowpotentialregion
(756,000acres).Allowingforfulldevelopment,the2014RFDSestimates1,600newwellsinthe
highpotentialregion,330newwellsinthemoderatepotentialregion,and30newwellsinthe
lowpotentialregion.
97. HorizontalwelldevelopmentintheMancosShalebeganin2010withtwogas
wellsdrilledinthenorthernpartoftheSanJuanBasin.InSeptember2011,thefirstoil
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producinghorizontalwellwasdrilledandfrackedinthenorthwestpartoftheBasin.Inearly
2012,thefirsthorizontaloilwellwasdrilledandfrackedinthesouthernpartoftheBasin.
98. Betweenearly2012andApril2014,70horizontalwellsweredrilledandfracked
intheMancosShale.
99. Accordingtothe2014RFDS,industryhasbeenencouragedbyearlyresultsand
activitycontinuestobestrong.Fromthebeginningof2014totheendofJulyof2014,industry
hadfiled99horizontalwellAPDstargetingtheMancosShale.Thelargestshareof
theseapproximately41wereinthesouthernportionoftheBasinaroundLybrookand
Counselor.
100. WhenCitizenGroupsmetwithBLMonDecember18,2014,theagencystated
thatithadapprovedapproximately119APDstargetingMancosShalesincethebeginningof
2014.TheagencycontinuestoapproveMancosShaleAPDs,andhasauthorizedatleast130
APDstodate.
101. BLMhasfailedtoprovidesufficientinformationtothepublictodeterminethe
exactnumberofAPDstheagencyhasapproved,andwhichofthosewellshavebeendrilledto
date.
102. AsprovidedinMichaelGold,etal.,115IBLA218(1989),whereaninitial
exploratorywellhasbeensuccessfullydrilledandalesseefilesanAPDforadditional
developmentwells,thefilingoftheAPDtriggerstherequirementforanEIS,unlessanEIShas
alreadybeenpreparedwhichanalyzestheimpactsthatcanbeexpectedfromfullfield
development.
103. IndustrysubmittedAPDstoBLMcommonlyseekapprovalformultiplewellsin
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onepermit.BLMhasbeenroutinelypreparingindividual,piecemealEAsforeachAPDthe
agencyreceives,andthensubsequentlyissuingaFONSIforeachAPD.Theagencyhasfailedto
provideanyaggregatedNEPAanalysisconsideringthefullscaleofongoingconnectedand
cumulativedevelopmentintheMancosShale.
104. AsprovidedbyBLM,APDsundergoaninternalscopingprocessbutarenot
madeavailableforpublicrevieworcomment.Becausetheagencyhasfailedtoprovide
sufficientinformationtothepublic,CitizenGroupsdonotknowtheexactnumberofAPDsfor
frackingintheMancosShalethattheagencyhasreceived,forwhichofthoseAPDsBLMhas
completedcorrespondingNEPAdocumentation,andwhichBLMhasapproved.BLMhasalso
failedtoprovidethepublicwithinformationregardingthecommencementofgrounddisturbing
activitypursuanttotheseAPDs.
105. AlistofallEAsobtainedbyCitizenGroupsforMancosShaleAPDs,as
identifiedbyNEPAidentificationnumberandorganizedbyyear,isprovidedattheendofthis
documentasAppendix1.
106. AlloftheEAsobtainedbyCitizenGroupstiertoandincorporatebyreferencethe
informationandanalysiscontainedinBLMs2003RMP/EIS.
107. AlloftheEAsfortheAPDauthorizationslistedinAppendix1containvirtually
identicallanguageandjustificationforreachingaFONSI.NoneoftheEAsanalyzethedirect,
indirect,andcumulativeimpactsoftheproposedactions.NoneoftheEAsanalyzesitespecific
impacts.NoneoftheEAsconsiderarangeofreasonablealternatives,letalonealternativesthat
addressfullfielddevelopmentoftheBasininaccordwithreasonablyforeseeablefullfield
development.
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108. WhileindividualsEAsfortheapprovalslistedinAppendix1maycontainminor
differencesinverbiage,theyarevirtuallyidenticalinmostrespects.Whendiscussingthe
AffectedEnvironmentandEnvironmentalConsequencesfortheproposedAPDs,thelanguage
inallintheEAsisvirtuallyidenticalthroughout,including,forexample,theentireairresources
sectionsofthosedocuments.Forexample,whendiscussinggreenhousegasemissions,eachof
theAPDsprovides:
TheavailablestatewideGHGsummarycombinesGHGemissionsfromCO2andCH4.TocomparetheGHGemissionsfromtheProposedActionestimatedbythecalculatorwithstatewideGHGemissions,CO2eemissionsforbothCH4andCO2weresummed.ThetotalstatewideGHGemissionestimatefor2007was76,200,000metrictonsCO2e(76.2millionmetrictons(NMED2010).TheestimatedCO2emetrictonsemissionsfromonehorizontaloilwell(609.2metrictons)wouldrepresenta0.0008percentincreaseinNewMexicoCO2emissions.
109. ThecumulativeimpactsanalysisforairresourcesintheEAsfortheapprovals
listedinAppendix1arealsoidentical,providingthat[a]nalysisofcumulativeimpactsfor
reasonabledevelopmentscenariosandreasonablyforeseeabledevelopmentscenariosofoiland
gaswellsonpubliclandsintheBLMFFOwaspresentedinthe2003RMP.
110. WhiletheEAsallcontainadescriptionoffracking,noneprovidesanyactual
analysisofthedirect,indirect,orcumulativeimpactsthatfrackingwillhaveontheenvironment
orhumancommunitiesinthearea.EachAPDprovidesonlythat:
Stimulation(i.e.,hydraulicfracturingorfracking)isaprocessusedtomaximizetheextractionofundergroundresourcesbyallowingoilornaturalgastomovemorefreelyfromtherockporestoproductionwellsthatbringtheoilorgastothesurface.Fluids,commonlymadeupofwater(99percent)andchemicaladditives(1percent),arepumpedintoageologicformationathighpressureduringfracking(EPA2004).Chemicalsaddedtostimulationfluidsmayincludefrictionreducers,surfactants,gellingagents,scaleinhibitors,acids,corrosioninhibitors,antibacterialagents,andclaystabilizers.Whenthefrackingpressureexceedstherockstrength,thefluidsopenorenlargefracturesthattypicallyextendseveralhundredfeetawayfromthewellbore,andmayoccasionallyextendupto1,000
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feetfromthewellbore.Afterthefracturesarecreated,aproppingagent(usuallysand)ispumpedintothefracturestokeepthemfromclosingwhenthepumpingpressureisreleased.Afterfrackingiscompleted,aportionoftheinjectedfrackingfluidsreturnstothewellboreandisrecoveredforfuturefrackingoperations(EPA2004)ordisposal.StimulationtechniqueshavebeenusedintheU.S.since1949andintheSanJuanBasinsincethe1950s.Overthelast10years,advancesinmultistageandmultizonefrackinghaveallowedforthedevelopmentofgasfieldsthatpreviouslywereuneconomic,includingtheSanJuanBasin.
111. TheEAsfortheapprovalslistedinAppendix1failtoprovideanymeaningful
analysisoftheimpactsofhydraulicallyfracturingtheMancosShale.TheEAsalsofailtodiscuss
oraggregatethecurrentandforeseeablecumulativeimpactsfromallAPDstargetingMancos
Shale,orexistingactiveoilandgaswellsintheSanJuanBasinthatdonottargethorizontal
drillingandhydraulicfracturingintheMancosShale.Moreover,theEAsfailtoconsiderarange
ofreasonablealternativesappropriatetothereasonablyforeseeableprospectsoffullfield
development.
112. WhilemanyoftheapprovedAPDsareinthesouthernportionoftheSanJuan
Basin,aroundCounselorandLybrookanareanotedforapatchworkofState,Federal,
NavajoTrust,NavajoAllotment,andprivatelands,andanareapredominatedbylowincome
NativeAmericanpopulationsthereisonlycursorymentionofenvironmentaljusticeissues.
Theenvironmentaljusticediscussionislimitedtostatementsthattheproposedprojectswould
resultinnodisproportionate,negativeeffectstominorityorlowincomepopulations.
113. NoneofBLMsEAsfortheMancosShaleAPDsincludeanylandscapelevel
analysisofimpactstosignificanthistoricandculturalpropertiessuchastheChacoCultural
NationalHistoricalPark,ChacoanOutliers,orotherculturalcomponentsoftheGreaterChaco
Landscape.BydefiningtheanalysisareaforeachAPDasthewellpadanditsassociated
features,BLMlimiteditsimpactsanalysisonlytohistoricpropertieswithintheAPDfootprint.
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BLMdidnotanalyzenoise,air,andvisualimpactsfromactivitiesonthewellpadsandtheir
associatedinfrastructuretohistoricandculturalpropertieslocatedoutsidetheprojectfootprint.
114. ThereisnoevidencethatBLMconsultedwiththeNewMexicoSHPOoverthe
direct,indirect,orcumulativeimpactsofAPDactivitiesonhistoricandculturalproperties
locatedoutsideoftheprojectfootprint.
115. Theapprovalofatleast130APDsforfrackingintheMancosShalehasalready
ledtosubstantialimpactstotheenvironment,includingtoculturalresourcesandthepeople
livinginandvisitingthearea.Thepresenceofdrillingrigs,pumpjacks,wells,flaring,tanks,
pipelines,relatedinfrastructure,andextensivenewroadsystemshaveledtoimpactsincluding
butnotlimitedtodegradationofvisuallandscapes,increasedairpollution,increasednoise
pollution,reducedrecreationalopportunities,reducedopportunitiesforsolitudeandspiritualuse
oftheland,increasedsafetyhazards,andsignificantlyincreasedtrucktraffic.Further,BLMhas
signaledandfurtherunderscoredthefullscalenatureofcurrentdevelopmentduringajust
completedscopingperiodtoprepareanEAtobuilda50,000barrelperdaycrudeoilpipeline
thatwouldquintuplethecurrentproductionvolumeintheBasin.
F. BLMsFailuretoAllowforPublicParticipationinAgencyDecisionmaking
116. UponreceiptofanAPDornoticeofstaking,BLMisrequiredtopostinformation
forpublicinspectionatleast30daysbeforetakingactiontoapprovetheAPD.43C.F.R.
3162.31(g).
117. PublicinvolvementisalsoafundamentalprovisionofNEPA,requiringBLMto
involvethepublictotheextentpracticableandto[m]akediligenteffortstoinvolvethepublicin
preparingandimplementingtheirNEPAprocedures.40C.F.R.1501.4(b),1506.6.Seealso
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43C.F.R.46.305.
118. InBLMslettertoCitizenGroups,datedDecember11,2014,theagencystates
thateachAPDisscreenedduringaninternalscopingprocesstoidentifytheissuesforanalysisin
eachEA.BLMfurtherstatedthatEAsforroutineAPDsdonotgenerallyrequireapublic
commentperiodbecauseoftheirroutinenature,thetightregulatorytimeframes,andbecause
numerouspublicinvolvementopportunitiesareprovidedduringtheinitialstagesofproject
development.
119. Throughoutthecourseof2014,CitizenGroupsperiodicallycheckedtheBLM
FarmingtonFieldOfficewebsiteNEPAlogfordocumentationrelatingtoMancosShale
development.Oneachoccurrencenoinformationwasavailable.
120. OnoraboutOctober2,2014,aCitizenGroupsrepresentativevisitedtheBLM
FarmingtonFieldOfficeReadingRoomtoreviewEAspreparedforoilandgasprojectstargeting
theMancosShale.NoEAswereavailableintheReadingRoomforthepublic.Thesameday,
CitizenGroupssentanemailtoBLMstatingthatnooilwellrelatedEAswereavailabletothe
publiceitherintheReadingRoomoronBLMswebsiteandidentifyingspecific
developmentareasofconcerninthesouthernportionoftheSanJuanBasin.
121. OnoraboutOctober3,2014,inanemailresponsefromBLMtoCitizenGroups,
theagencyconfirmed:theyvehadsomeworkloadissuesthathavepreventedthemfromgetting
EAsintothepublicroom.
122. OnoraboutDecember7,2014,CitizenGroupssentalettertoBLMoutlining
theirconcernswithpublicparticipationandagenerallackoftransparencyintheagencys
decisionmakingprocess.ThisletterreiteratedconcernsrelatedtotheavailabilityofNEPA
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documentationforMancosShalewells,aswellasidentifiedtheagencysfailuretopostNotices
ofStakingforpublicreview,whichwerealsonotavailableinBLMsreadingroomoronline.
123. InaletterdatedJanuary26,2015,BLMrespondedtoCitizenGroupsletter,
notingthatBLMmadearrangementstomakethoseEAsavailable,andhavesinceidentified
andareworkingtoimproveourprocessforgettingEAsinthePublicRoom.
124. NotuntilFebruary,2015,didBLMbegintopostNEPAdocumentationforAPDs
intheSanJuanBasintotheagencyswebsite.
CLAIMSFORRELIEF
FIRSTCLAIMFORRELIEF(ViolationofNEPAFailuretoAnalyzeDirect,Indirect,andCumulativeImpactsof
MancosShaleFracking:ImproperTiering)
125. Theallegationsmadeinallprecedingparagraphsarereallegedandincorporated
bythisreference.
126. PursuanttoNEPAandNEPAsimplementingregulations,BLMmusttakeahard
lookatthedirect,indirect,andcumulativeenvironmentalconsequencesofaproposedaction.42
U.S.C.4332(2)(C)(i)(v)40C.F.R.1502.14(a),1502.16,1508.7,1508.8,and1508.14.
127. BLMisrequiredtoprovideahardlookanalysisoftheseimpactsbeforethereare
anyirreversibleandirretrievablecommitmentsofresourceswhichwouldbeinvolvedinthe
proposedactionshoulditbeimplemented.42U.S.C.4332(2)(C)(v)seealso40C.F.R.
1501.2,1502.5(a).
128. DirectandindirectimpactsoffrackingtheMancosShaleincludebutarenot
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limitedtoimpactsfromhorizontaldrillingtechnologyandfrommultistagehydraulicfracturing
thatBLMneitheranticipatednoranalyzedinthe2003RMP/EIS.
129. CumulativeimpactsfromcurrentandforeseeablefrackingintheMancosShale
includethecombinedimpactofoilandgasdevelopmentwithotherpast,presentandreasonably
foreseeabledevelopmentinthearea,includingbutnotlimitedtothecumulativeimpactsof
greenhousegaspollutiontotheatmosphereonthecommunitiesandlandscapesofNewMexico
andtheAmericanWestfromsurroundingoilandgasactivities,aswellasothergreenhousegas
emissionsources,suchascoalminesandcoalfiredpowerplantscumulativeimpactstoair
qualityfromtheemissionofcriteriapollutantscumulativeimpactstosurfaceandgroundwater
resourcesandwaterquantitycumulativeimpactstohumanhealthandcumulativeimpactsto
culturalpropertieslistedontheNationalRegisterofHistoricPlacessuchasChacoCulture
NationalHistoricalPark.
130. WhenBLMapprovedtheAPDsforMancosShalefrackingatissuehere,itdid
notconductanyanalysisoffrackingsimpactsontheenvironment.Instead,BLMpurportedto
tiertoananalysisofenvironmentalimpactsfromconventionaloilandgasdevelopmentinthe
2003RMPEIS.
131. BLMsattemptstotiertothe2003EISwerearbitraryandcapriciousbecausethat
EISneveranalyzedtheimpactsoffrackingintheMancosShale.BLMhasdonenoanalysisof
environmentalimpactsfromthisextractiontechnologybeingcurrentlyemployedintheMancos
Shale.
132. BLMsapprovalsofAPDswhilefailingtotakeahardlookortoanalyzefullythe
direct,indirect,andcumulativeenvironmentalimpactsofMancosShalefrackingwerearbitrary,
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capricious,anabuseofdiscretion,inexcessofstatutoryauthorityandlimitations,shortof
statutoryright,andnotinaccordancewiththelawandproceduresrequiredbylaw.5U.S.C.
706(2)(A),(C),(D).
133. BLMspatternandpracticeofapprovingAPDswhilefailingtotakeahardlook
ortoanalyzefullythedirect,indirect,andcumulativeenvironmentalimpactsofMancosShale
frackingwasarbitrary,capricious,anabuseofdiscretion,inexcessofstatutoryauthorityand
limitations,shortofstatutoryright,andnotinaccordancewiththelawandproceduresrequired
bylaw.5U.S.C.706(2)(A),(C),(D).
SECONDCLAIMFORRELIEF(ViolationofNEPAFailuretoPrepareanEISorSupplementExistingEIS)
134. Theallegationsmadeinallprecedingparagraphsarereallegedandincorporated
bythisreference.
135. NEPAobligatesfederalagenciestoprepareanEISformajorfederalactions
significantlyaffectingthequalityofthehumanenvironment.42U.S.C.4332(2)(C).
136. AnagencymayfirstprepareanEA:(1)toprovideevidenceandanalysisthat
establishwhetherornotanEISoraFONSIshouldbeprepared(2)tohelpitcomplywithNEPA
whennoEISisnecessaryand(3)tofacilitatepreparationofanEISwhenoneisnecessary.40
C.F.R.1508.9.
137. Iftherearesubstantialquestionswhetheraproposedactionmaysignificantly
impacttheenvironment,theagencymustprepareanEIS.
138. Whetherornotaproposedactionsignificantlyimpactstheenvironmentis
determinedbyconsideringcontextandintensity.40C.F.R.1508.27.
139. BLMsapprovalofatleast130APDsforfrackingintheMancosShaleisandwill
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PAGE39of46
continuetosignificantlyimpactairandwaterquality,humanhealth,climateandcultural
resourcesintheregion.NEPAthereforerequiresBLMtoprepareanEISevaluatingtheimpacts
offrackingoperationsintheMancosShalebeforeapprovinganyAPDsusingthistechnology.
140. CEQregulationsprovidethateveryagencyshallpreparesupplementsto
environmentalimpactstatementsiftherearesignificantnewcircumstancesorinformation
relevanttoenvironmentalconcernsandbearingontheproposedactionoritsimpacts.40C.F.R.
1502.9(c)(1)(ii).
141. BLMsFederalRegisterNoticefortheMancosShaleRMP/EIS,79Fed.Reg.
10,548(Feb.25,2014),recognizes:Asfullfielddevelopmentoccurs,especiallyintheshaleoil
play,additionalimpactsmayoccurthatpreviouslywerenotanticipatedinthe[2001]RFDor
analyzedinthecurrent2003RMP/EIS,whichwillrequireanEISlevelplanamendmentand
revisionoftheRFDforcompleteanalysisoftheMancosShale/GallupFormation.
142. ThisrecognitionisevidencethatBLMsapprovalsofatleast130newAPDs
targetingMancosShalewerenotcoveredbythe2003RMP/EIS.Thus,theseapprovalsrepresent
significantnewinformationrelevanttoenvironmentalconcerns,aswellasasubstantialchange
inimplementationofthe2003RMP/EISforalloilandgasdevelopmenttargetingMancosShale.
NEPAthereforerequiresBLMtoprepareasupplementalEISevaluatingtheimpactsoffracking
intheMancosShale.
143. BLMsEAspreparedforindividualMancosShaleAPDsfailtocurethedeficient
analysisofsuchadditionalimpactswhichwerenotanticipatedoranalyzedinthe2003
RMP/EIS.
144. BLMhasapprovedatleast130APDsforfrackingintheMancosShalewithout
-
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supplementationofthe2003RMP/EIS,andwithoutcompletionoftheMancosRMPA/EIS.
145. BLMviolatedNEPAbyfailingtoprepareanEISorsupplementalEISbefore
approvingatleast130APDsforhydraulicfracturingoperationsintheMancosShale.The
agencysfailurewasarbitrary,capricious,anabuseofdiscretion,inexcessofstatutoryauthority
andlimitations,shortofstatutoryright,andnotinaccordancewiththelawandprocedures
requiredbylaw.5U.S.C.706(2)(A),(C),(D).
THIRDCLAIMFORRELIEF(ViolationofNEPATakingActionDuringtheNEPAProcess)
146. Theallegationsmadeinallprecedingparagraphsarereallegedandincorporated
bythisreference.
147. NEPArequiresallFederalagenciestoconsidertheeffectsoftheiractionsonthe
environmentthroughcompliancewithitsprocedures.NEPArequiresFederalagenciestoinsure
thatenvironmentalinformationisavailabletopublicofficialsandcitizensbeforedecisionsare
madeandactionsaretakenandtohelppublicofficialsmakedecisionsthatarebasedon[an]
understandingofenvironmentalconsequences,andtakeactionsthatprotect,restore,andenhance
theenvironment.40C.F.R.1500.1(b)(c)(emphasisadded).
148. NEPAprovides:Whileworkonarequiredprogramenvironmentalimpact
statementisinprogressandtheactionisnotcoveredbyanexistingprogramstatement,agencies
shallnotundertakeintheinterimanymajorFederalactioncoveredbytheprogramwhichmay
significantlyaffectthequalityofthehumanenvironmentunlessthataction:(1)isjustified
independentlyoftheprogram(2)isitselfaccompaniedbyanadequateenvironmentalimpact
statementand(3)willnotprejudicetheultimatedecisionontheprogram.Interimaction
prejudicestheultimatedecisionontheprogramwhenittendstodeterminesubsequent
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PAGE41of46
developmentorlimitalternatives.40C.F.R.1506.1(c)(1)(3).
149. BLMisintheprocessofpreparingaResourceManagementPlanAmendment
andEIStoconsiderdevelopmentoftheMancosShale/Gallupformations.BLMhasstated:
additionalimpactsmayoccurthatpreviouslywerenotanticipatedinthe[2001]RFDor
analyzedinthecurrent2003RMP/EIS,whichwillrequireanEISlevelplanamendmentand
revisionoftheRFDforcompleteanalysisoftheMancosShale/GallupFormation.
150. BLMhasapprovedatleast130APDsforfrackingintheMancosShalewithout
havingcompletedanEIS.Theseactionswillimpermissiblyprejudicethedecisionmaking
processandlimitthechoiceofalternativesinthependingMancosRMPA/EISdevelopment
process.
151. BLMsAPDapprovalsthatprejudicetheMancosRMPA/EISandlimitthechoice
ofalternativeswerearbitrary,capricious,anabuseofdiscretion,inexcessofstatutoryauthority
andlimitations,shortofstatutoryright,andnotinaccordancewiththelawandprocedures
requiredbylaw.5U.S.C.706(2)(A),(C),(D).
FOURTHCLAIMFORRELIEF(ViolationofNEPAFailuretoInvolvethePublic)
152. Theallegationsmadeinallprecedingparagraphsarereallegedandincorporated
bythisreference.
153. NEPAregulationsdirectthatBLMshouldencourageandfacilitatepublic
involvement.40C.F.R.1500.2(d).
154. BLMisfurtherrequiredtoinvolvethepublictotheextentpracticableandto
[m]akediligenteffortstoinvolvethepublicinpreparingandimplementingtheirNEPA
procedures,includingthepreparationofEnvironmentalAssessments.40C.F.R.1501.4(b),
-
PAGE42of46
1506.6.BLMmustnotifythepublicoftheavailabilityofanenvironmentalassessment
andanyassociatedfindingofnosignificantimpactoncetheyhavebeencompleted.43
C.F.R.46.305.
155. NEPAproceduresmustensurethatenvironmentalinformationisavailableto
publicofficialsandcitizensbeforedecisionsaremadeandbeforeactionsaretaken.40C.F.R.
1500.1.NEPAsimplementingregulationsprovidepublicinvolvementrequirements.40C.F.R.
1506.6.
156. BLMviolatedNEPAregulationswhichrequirethataFONSIshallbemade
availabletotheaffectedpublicandthatthepublicandotheraffectedagenciesshallbe
involvedintheNEPAprocess.40C.F.R.1501.4(e)(1)1506.6.
157. BLMhasfailedtomakeNEPAdocumentsandinformationregardingdrillingand
developmenttargetingMancosShaleincludingAPDs,EAs,FONSIsavailabletothepublic
througheithertheFarmingtonFieldOfficeReadingRoomoronline.BLMsactionswere
arbitrary,capricious,anabuseofdiscretion,inexcessofstatutoryauthorityandlimitations,short
ofstatutoryright,andnotinaccordancewiththelawandproceduresrequiredbylaw.5U.S.C.
706(2)(A),(C),(D).
158. BLMsactionswerealsoarbitrary,capricious,anabuseofdiscretion,inexcessof
statutoryauthorityandlimitations,shortofstatutoryright,andnotinaccordancewiththelaw
andproceduresrequiredbylawbecausetheyevidenceapatternandpracticeoffailingtoprovide
anyopportunityformeaningfulpublicinvolvementintheagencysapprovalsofAPDsfor
Mancosshaledevelopment.5U.S.C.706(2)(A).
FIFTHCLAIMFORRELIEF(ViolationofNHPAFailuretoCommenceandCompleteaSection106
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Consultation)
159. Theallegationsmadeinallprecedingparagraphsarereallegedandincorporated
bythisreference.
160. AllofBLMsMancosShaleAPDapprovalsconstituteundertakingsunderthe
NHPAthathavethepotentialtoadverselyaffectlandscapelevelhistoricandculturalproperties
suchasChacoCulturalNationalHistoricalPark,affiliatedChacoGreatHousesites,andancient
ceremonialroads.Therefore,BLMisrequiredtoconsultwiththeNewMexicoSHPO,Indian
Tribes,andthepublicabouttheextenttowhichMancosShalefrackingresultingfromtheAPDs
challengedhereinadverselyaffecthistoricandculturalsitesandcompromisethecharacteristics
thatmakethesepropertieseligibleforandlistedontheNationalRegisterofHistoricPlaces.
161. PriortoapprovinganyoftheAPDsatissueinthislawsuit,thereisnorecord
showingthatBLMconsultedwithIndianTribes,theNewMexicoSHPO,orthepublicregarding
potentialadverseeffectstolandscapelevelhistoricandculturalpropertiesfromMancosShale
fracking,orassessedsucheffects.
162. BecausefrackingintheMancosShaleisandhasbeensubjecttounusualpublic
attentionandhasinvolvedstronglyopposingviewpointsaboutfrackingsimpactstohistoricand
culturalproperties,BLMcannotuseoftheProtocolAgreementwiththeNewMexicoSHPOto
meetBLMsSection106complianceobligations.BLMwasrequiredtofollowtheSubpartB
regulationsforNHPASection106consultationforalloftheAPDapprovalschallengedherein.
163. BLMsfailuretoconsultwiththeNewMexicoSHPO,IndianTribes,and
interestedmembersofthepublicorassessadverseeffectstoidentifiedhistoricpropertiespriorto
approvingatleast130APDsforfrackingintheMancosShaleviolatedtheNHPAandits
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implementingregulationsandwasarbitrary,capricious,andcontrarytolawinviolationofthe
APA,5U.S.C.706(2)(A).
RELIEFREQUESTED
WHEREFORE,PlaintiffCitizenGroupsrespectfullyrequestthatthisCourt:
A. DeclarethatBLMsapprovalsofallAPDsallowinghorizontaldrillingand
hydraulicfracturingintheMancosShaletodateviolateNEPAandtheNHPA
B. VacateBLMsapprovalsofallAPDsapprovinghorizontaldrillingandhydraulic
fracturingintheMancosShaletodate
C. EnjoinallfuturehorizontaldrillingorhydraulicfracturingintheMancosShale
previouslyapprovedbyBLM,pendingfullcompliancewithNEPAandtheNHPA
D. EnjoinBLMfromapprovinganyAPDsthatpermithorizontaldrillingor
hydraulicfracturingintheMancosShaleformationpendingfullcompliancewithNEPAandthe
NHPA
F. RetaincontinuingjurisdictionofthismatteruntilBLMfullyremediesthe
violationsoflawcomplainedofherein
G. AwardtheCitizenGroupstheirfees,costs,andotherexpensesasprovidedby
applicablelaw
H. ProvideanyfurtherreliefthattheCourtviewsasjustandequitable.
Respectfullysubmittedthis11thdayofMarch2015,
/s/KyleJ.Tisdel _______________KyleJ.Tisdeltisdel@westernlaw.org
WESTERNENVIRONMENTALLAWCENTER 208PaseodelPuebloSur,Suite602
-
PAGE45of46
Taos,NewMexico87571(p)575.613.8050(f)575.751.1775
CounselforPlaintiffs
/s/SamanthaRuscavageBarz___________SamanthaRuscavageBarzsruscavagebarz@wildearthguardians.org
WILDEARTHGUARDIANS516AltoStreetSantaFe,NM87501(p)505.401.4180(f)505.213.1895
CounselforPlaintiffWildEarthGuardians
APPENDIX1.FinalAgencyActionsChallengedHerein
2013
DOIBLMNMF01020130012EADOIBLMNMF01020130081EADOIBLMNMF01020130103EADOIBLMNMF01020130105EADOIBLMNMF01020130115EADOIBLMNMF01020130225EADOIBLMNMF01020130288EADOIBLMNMF01020130324EADOIBLMNMF01020130391EADOIBLMNMF01020130393EADOIBLMNMF01020130358EADOIBLMNMF01020130414EADOIBLMNMF01020130531EADOIBLMNMF01020130535EA
2014
DOIBLMNMF01020140004EADOIBLMNMF01020140005EADOIBLMNMF01020140006EA
-
PAGE46of46
DOIBLMNMF01020140008EADOIBLMNMF01020140009EADOIBLMNMF01020140029EADOIBLMNMF01020140039EADOIBLMNMF01020140047EADOIBLMNMF01020140049EADOIBLMNMF01020140057EADOIBLMNMF01020140080EADOIBLMNMF01020140087EADOIBLMNMF01020140088EADOIBLMNMF01020140101EADOIBLMNMF01020140107EADOIBLMNMF01020140114EADOIBLMNMF01020140117EADOIBLMNMF01020140120EADOIBLMNMF01020140122EADOIBLMNMF01020140145EADOIBLMNMF01020140148EADOIBLMNMF01020140162EADOIBLMNMF01020140175EADOIBLMNMF01020140180EADOIBLMNMF01020140191EADOIBLMNMF01020140217EADOIBLMNMF01020140224EADOIBLMNMF01020140246EADOIBLMNMF01020140250EADOIBLMNMF01020140262EADOIBLMNMF01020140274EADOIBLMNMF01020140292EADOIBLMNMF01020140294EA
2015
DOIBLMNMF01020150007EADOIBLMNMF01020150015EADOIBLMNMF01020150028EADOIBLMNMF01020150036EADOIBLMNMF01020150045EADOIBLMNMF01020150057EADOIBLMNMF01020150066EA
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