State of Wis. v. Weinberger

Decision Date31 January 1984
Docket NumberNo. 83-C-672-C.,83-C-672-C.
Citation578 F. Supp. 1327
PartiesSTATE OF WISCONSIN, Plaintiff, and County of Marquette Michigan, Intervening Plaintiff, v. Caspar W. WEINBERGER, individually and as Secretary of the Department of Defense, the United States Department of Defense, John F. Lehman, Jr., individually and as Secretary of the Department of the Navy, and the United States Department of the Navy, Defendant.
CourtU.S. District Court — Western District of Wisconsin

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Shari Eggleson, Asst. Atty. Gen., Madison, Wis., for the State of Wis.

Patricia Micklow, Chief Civ. Counsel, Marquette County, Marquette, Mich., for intervening plaintiff County of Marquette, Michigan.

John Byrnes, U.S. Atty., Madison, Wis., for defendant.

                            TABLE OF CONTENTS
                  I. POSTURE OF THE CASE ........................ 1332
                 II. SCOPE OF JUDICIAL REVIEW ................... 1333
                III. FACTS ...................................... 1334
                     A. Administrative Record ................... 1334
                        1. Background of controversy ............ 1334
                           a. Navy ELF proposals prior
                              to 1981 ........................... 1334
                           b. Environmental documentation
                              for pre-1981 ELF proposals ........ 1335
                              1) 1972 environmental impact
                                 statement ...................... 1336
                              2) 1975 supplemental environmental
                                 impact statement ............... 1337
                              3) National Academy of
                                 Sciences study ................. 1337
                              4) 1977 environmental impact
                                 statement ...................... 1338
                        2. 1981 reactivation of ELF communication
                           proposal ............................. 1340
                           a. Decision .......................... 1340
                           b. Scope of current proposal ......... 1340
                           c. Environmental impact assessment
                              for the current proposal .......... 1341
                        3. Navy-supported research in
                           biological effects ................... 1341
                           a. Pensacola primate experiments ..... 1341
                           b. UCLA monkey behavior
                              study ............................. 1342
                           c. Continued studies ................. 1342
                              1) bird migration studies ......... 1342
                              2) multigenerational mice
                                 studies ........................ 1342
                              3) slime mold studies ............. 1343
                        4. IIT Research Institute activities .... 1343
                        5. Ecological information ............... 1343
                           a. Forest Service wildlife
                              surveys ........................... 1343
                           b. Ecological monitoring
                              program ........................... 1344
                           c. Electromagnetic field
                              measurements ...................... 1344
                        6. Scientific literature ................ 1344
                           a. Wertheimer-Leeper articles ........ 1345
                           b. Rhode Island epidemiology
                              study ............................. 1345
                           c. Stockholm epidemiology
                              study ............................. 1345
                           d. Delgado study ..................... 1345
                           e. Letters to the Editor ............. 1346
                           f. Other publications ................ 1347
                              1) World Health Organization
                                 report ......................... 1347
                              2) Montana Department of
                                 Natural Resources and
                                 Conservation report ............ 1347
                        7. Navy review of scientific
                           information .......................... 1348
                           a. Environmental Review
                              Committee ......................... 1348
                
                           b. IIT Research Institute
                              literature review ................. 1349
                              1) Wertheimer-Leeper
                                 articles ....................... 1349
                              2) Rhode Island epidemiology
                                 study .......................... 1349
                              3) Stockholm epidemiology
                                 study .......................... 1350
                              4) Delgado study .................. 1350
                              5) Letters to the Editor .......... 1350
                           c. Other reviews ..................... 1350
                           d. IIT Research Institute public
                              interest review ................... 1350
                        8. Biological effects information in
                           administrative record in fall, 1981 .. 1350
                     B. Trial Testimony ......................... 1351
                        1. Navy review of scientific
                           information in conjunction with
                           its 1981 decision to reactivate
                           Project ELF .......................... 1351
                        2. Post-1977 scientific research ........ 1352
                           a. Research studies not included
                              in the administrative record ...... 1352
                              1) Blackman and Adey window
                                 research ....................... 1352
                                 a) the study ................... 1352
                                 b) expert assessment ........... 1353
                              2) Batelle Laboratories
                                 studies ........................ 1353
                                 a) the study ................... 1353
                                 b) expert assessment ........... 1353
                              3) Slime mold studies ............. 1353
                                 a) the study ................... 1353
                                 b) expert assessment ........... 1354
                              4) Additional research ............ 1354
                                 a) the studies ................. 1354
                                 b) expert assessment ........... 1354
                           b. Post-1977 scientific literature
                              in the administrative record ...... 1354
                              1) epidemiology studies ........... 1354
                              2) Delgado study .................. 1355
                              3) Letters to the Editor .......... 1355
                 IV. OPINION .................................... 1355
                     A. Scope of the National Environmental
                        Policy Act .............................. 1355
                        1. Exemption of presidential
                           decision ............................. 1355
                        2. Exemption of activities begun
                           before January 1, 1970 ............... 1355
                     B. Standard of Review of an Agency
                        Decision not to Prepare a Supplemental
                        Environmental Impact Statement .......... 1356
                     C. Navy's Obligation to File a Supplemental
                        Environmental Impact
                        Statement ............................... 1357
                        1. Substantiality of changes in the
                           proposed action ...................... 1357
                           a. Maintenance and modernization
                              activities ........................ 1358
                           b. Reduction of environmental
                              impact ............................ 1358
                           c. Conversion to a fully operational
                              system ............................ 1359
                        2. Significance of new information
                           of biological effects of electromagnetic
                           radiation ............................ 1360
                           a. Environmental significance of
                              the new information ............... 1361
                           b. Degree of care with which
                              the Navy considered the new
                              information ....................... 1363
                           c. Sufficiency of Navy's explanation
                              of its decision not to file
                              a supplemental environmental
                              impact statement .................. 1364
                     D. Remedy .................................. 1364
                  V. ORDER ...................................... 1365
                
I. POSTURE OF THE CASE

CRABB, Chief Judge.

This is a civil action in which plaintiff State of Wisconsin seeks a preliminary and permanent injunction of any additional work by defendants on Project ELF submarine communication facilities in northern Wisconsin and the upper peninsula of Michigan until defendants have prepared a supplemental environmental impact statement. Plaintiff contends a supplemental environmental impact statement is required by the National Environmental Policy Act of 1969, 42 U.S.C. §§ 4321-4335 and implementing regulations.

Marquette County, Michigan has been granted leave to intervene permissively, with its participation limited to the issue whether a supplemental environmental impact statement is necessary for the proposed ELF Project in northern Wisconsin and the upper peninsula of Michigan because of significant new information concerning biological effects of extremely low frequency electromagnetic radiation.

A hearing on plaintiffs' motion for a preliminary injunction was consolidated with a trial on the merits of the case. At the conclusion of the trial, I denied plaintiffs' motion for a preliminary injunction. I held that the question of ultimate success on the merits was a close one and plaintiffs had not shown a reasonable likelihood of prevailing; that the main thrust of plaintiffs' case was directed to the operation of the ELF facility and the biological consequences of that operation and plaintiffs had not shown that defendants' continued work on the construction aspects of the Wisconsin and upper Michigan ELF facilities constituted irreparable harm; that the balance of harms was approximately even; and that the public interest would not be served or disserved by the issuance of an injunction at that time. I stated that construction work such as the preparation of the sites, erection of buildings, upgrading of existing buildings, and installation of antennae could go forward if defendants were willing to assume the risk that they would subsequently be enjoined from completing the work and putting the facilities into operation.

II. SCOPE OF JUDICIAL REVIEW

As a threshold matter, I must consider defendants' motion to limit judicial review of the Navy's compliance with the National Environmental Policy Act to a review of the administrative record.

There are two exceptions to the ordinary rule that judicial review of agency...

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3 cases
  • State of Wis. v. Weinberger
    • United States
    • U.S. Court of Appeals — Seventh Circuit
    • 20 Agosto 1984
    ...both plaintiffs and defendants identified post-1977 research either as new information worth further inquiry or as important research. 578 F.Supp. at 1362. The district court went on to conclude that "the 1977 environmental impact statement is no longer adequate as a source of information n......
  • State of Wis. v. Weinberger
    • United States
    • U.S. District Court — Western District of Wisconsin
    • 5 Abril 1984
  • Williams v. Cabrera
    • United States
    • U.S. District Court — Eastern District of Missouri
    • 17 Junio 2011
    ...fences or of any alleged dangerousness of electromagnetic radiation emitting from such fences in that case. Wisconsin v. Weinberger, 578 F. Supp. 1327 (W.D. Wis. 1984), rev'd, 736 F.2d 438 (7th Cir. 1984), does to some extent concern electromagnetic radiation - it considers a challenge to t......
1 books & journal articles
  • EMFs and the potential for injury: real danger or overreaction?
    • United States
    • Defense Counsel Journal Vol. 62 No. 3, July 1995
    • 1 Julio 1995
    ...On the Line, ABA J. at 40 (Jan. 1994). (14.)EMF in Your Environment, supra note 3, at 22-24. (15.)Id. (16.)See Wisconsin v. Weinberger, 578 F.Supp. 1327 (W.D. Wis. 1984) (first judicial recognition of both public's growing awareness and increasing scientific studies of EMFs). See also Charl......

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