January 25, 2011
President Barack Obama The White House 1600 Pennsylvania Avenue, NW Washington, DC 20500
Via Facsimile: (202) 456-2461
Dear Mr. President:
The Project On Government Oversight (POGO) is a nonpartisan independent watchdog that champions good government reforms. POGO’s investigations into corruption, misconduct, and conflicts of interest achieve a more effective, accountable, open, and ethical federal government. As such, POGO has a keen interest in addressing the failures of oversight that led to the BP oil disaster, and ensuring accountability in the response to this offshore oil spill, the largest in our nation’s history. This spill has caused enormous economic problems in the Gulf states and for the people living there, continues to threaten vital ecosystems, and will remain a long-term concern for years to come whenever food is harvested from Gulf waters.
POGO has obtained internal emails written by officials involved in handling the crisis, including the National Oceanic and Atmospheric Administration (NOAA), the Environmental Protection Agency (EPA), the U.S. Geological Survey (USGS), and the White House. In these emails, officials discuss developing the BP Deepwater Horizon Oil Budget Report (Report). Released last summer, the Report offers conclusions about what happened to the petroleum released in the Gulf oil spill.1
Based on emails in our possession at this time, POGO is concerned that the White House may have ignored expert advice from agency officials and pressured scientists to make changes during the development of the Report in order to advance a public relations agenda. In these emails, agency officials describe “pushback” from the White House about Report conclusions. (Attachment A)
1 National Incident Command, BP Deepwater Horizon Oil Budget: What Happened To the Oil?, August 4, 2010. http://www.restorethegulf.gov/sites/default/files/imported_pdfs/posted/2931/Oil_Budget_description_8_3_FINAL.8 44091.pdf (Downloaded January 20, 2011) (hereinafter BP Deepwater Horizon Oil Budget: What Happened To the Oil? ); see also: Heather Zichal, “New Report: 74% of Oil in BP Deepwater Horizon Oil Spill has been Contained or Mitigated,” The White House Blog, August 4, 2010. http://www.whitehouse.gov/blog/2010/08/04/new-report-74-oil- bp-deepwater-horizon-oil-spill-has-been-contained-or-mitigated (Downloaded January 20, 2011) 1100 G Street, NW, Suite 900, Washington, DC 20005
(202) 347-1122 z www.pogo.org When EPA officials expressed concerns about how the effects of chemical dispersants were described, the concerns were ignored or overruled because of the goals of the “communication product” that NOAA was developing with the White House, according to e-mails. An e-mail stated that “the goal is to show chemical dispersion as part of the Federal response to the spill.” (Attachments A and B)
Furthermore, when reporters raised questions last fall about the Report, an Office of Management and Budget spokesman told McClatchy News that White House involvement with federal agencies that developed the Report was “not public relations or presentation.” 2 He added, “We offered them suggestions of ways to improve it and they happily accepted it.”
Such a statement appears to be undermined by the records in our possession.
EPA Science Ignored
Based on emails in our possession at this time, it appears that the technical opinions of scientists at the EPA were ignored. In the case of chemical dispersants, which were being applied to oil that was gushing out a mile below the surface, it appears the White House wanted the public to have more confidence in the effectiveness of these chemicals than the science would allow.
EPA scientists did not feel the science would allow any attempt to quantify the exact effect of these dispersants or to distinguish their effects from the natural dispersion that occurs when oil travels a mile up from the floor of the ocean to the surface.
Regarding the effects of chemical dispersants, an official at the EPA wrote to agency scientists:
The percentages are very rough and should not be considered accurate. We still do not believe we should in a public document try to distinguish between naturally and chemically dispersed oil in the ocean. These calculations are extremely rough estimates, yet when they are put into the press—which we want to happen—they will take on a life of their own. We should combine these two categories. (Attachment A)
Disagreeing with the EPA, an official with the USGS responded:
Based on how NOAA is developing a communication product with the [White House], the dispersion types (Natural & Chemical) will not be combined. We appreciate the case for combining them, however the goal is to show chemical dispersion as part of the Federal response to the spill. (Attachment B)
Defending the professional and scientific opinion of EPA scientists, the EPA official wrote:
I think you are making a mistake on the separate estimates of dispersal but I have no additional arguments other than it is not verifiable and we will be trying to explain it
2 Renee Schoof and Margaret Talev, “Report: White House squelched release of BP oil spill estimates,” McClatchy Newspapers, October 6, 2010. http://www.mcclatchydc.com/2010/10/06/101697/white-house-squelched- release.html (Downloaded January 20, 2011)
2 for the rest of our time on this. I will take it up with the white house [sic]. (Attachment A)
We would also note that earlier versions of the report listed an EPA official as one of the federal scientists who created and reviewed the report. (Attachment C) Neither that name, nor the name of any other EPA scientist, appears in the credits of the published Report.3 It is our understanding that EPA scientists were not completely comfortable with the findings in the published Report.
Public Relations First, Science Second
In a more subtle, but important example of putting an agenda first and science second, the White House glossed over the uncertainties that are often inherent in scientific calculations. Science is not public relations, where complicated issues can be simplified easily. But rather than acknowledging that it was impossible to quantify, with specificity, the likely size of the spill at the time, the White House apparently overruled NOAA’s advice to acknowledge these uncertainties and make public a range.
An early draft of the report sent to the White House stated that the size of the spill should be expressed as “between 3-5 millions barrels.” (Attachment C) A few days later, an official with NOAA wrote to colleagues, “We have received strong pushback from [White House] on the cumulative total used in our graphic being more than the official 4.93 M bbls.” (Attachment A)
Later drafts and the final Report replaced the range of 3-5 million barrels with a more precise figure of 4.9 million barrels (Attachment D), presumably to make it appear the Administration was more in control of the situation than was possible. It should be noted that the White House deserves credit for erring on the side of the larger end of the spectrum of the possible size of the spill.
But it is vital that the public be able to trust the decisions made by scientific agencies—and this trust should not be compromised to advance a public relations agenda. The American people need to know the hard facts, including any uncertainties, in order to make informed decisions.
We are concerned that White House officials may have removed the uncertainty that typically comes with scientific measurements and settled on a more definitive number to make the public feel more comfortable. We feel that the public would be better served by understanding that the government’s handling of the Gulf spill is filled with numerous uncertainties.
We find the White House’s actions troubling, especially given that you campaigned to restore the integrity of science in government policy and have taken laudable steps to do so. During your campaign, you pledged that this would “ensure that decisions that can be informed by science are made on the basis of the strongest possible evidence.”4 Shortly after taking office, you sent a memo to all heads of departments and agencies on scientific integrity, stating, “Political officials
3 BP Deepwater Horizon Oil Budget: What Happened To the Oil? 4 Obama for America, “Investing in America’s Future: Barack Obama and Joe Biden’s Plan for Science and Innovation.” http://www.barackobama.com/pdf/issues/FactSheetScience.pdf (Downloaded January 20, 2011)
3 should not suppress or alter scientific or technological findings and conclusions.”5 And in a December 2010 memo, you gave good guidance to department and agency heads, noting that successful public policy “depends on the integrity of scientific process both to ensure the validity of the information itself and to engender public trust in the Government.”6
We feel that it is important that you live up to your own policy for strengthening scientific integrity. Disregarding the opinions of federal scientists and oversimplifying their concerns does not meet this standard.
We thank you for your consideration of our concerns. If you have any questions or records that can help us understand this issue more, please feel free to contact me or Paul Thacker at 202.347.1122.
Sincerely,
Danielle Brian Executive Director
Paul D. Thacker Investigator
Attachments: 4
5 Memorandum from Barack Obama, President of the United States, to the Heads of Executive Departments and Agencies, regarding Scientific Integrity, March 9, 2009. http://www.whitehouse.gov/the-press-office/memorandum- heads-executive-departments-and-agencies-3-9-09 (Downloaded January 20, 2011) 6 Memorandum from John P. Holden, Assistant to the President for Science and Technology and Director of the Office of Science and Technology Policy, to the Heads of Executive Departments and Agencies, regarding Scientific Integrity, December 17, 2010. http://www.whitehouse.gov/sites/default/files/microsites/ostp/scientific-integrity- memo-12172010.pdf (Downloaded January 20, 2011)
4
Attachment A
Re: Oil Budget - EPA Comments - follow up and a request 1 3
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Re: Oil Budget- EPA Comments - follow up and a request 1
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Re: Oil Budget - EPA Comments - follow up and a request 1 7
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Re: Oil Budget - EPA Comments - follow up and a request 1
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7 of 7 9/27/2010 2:22 PM Re: Need feed back from USCG and NOAA on potential changes to T0849
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Can you add my name to that of Kevin & Matha as an executive sponsor?
. Also, I suggest that the definition of "Inland Recovery" be added to information in the executive summary output.
Stephen E. Hammond US Geological Survey Chief Emergency Operations Office, National Geospatial Program Reston, VA 703-648-5033 w
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To: Mark Miller r ll r@n v > From: Sky Bristol br t l@ v> Date: 07/31/2010 09:36PM cc: Stephen Hammond h n@ v> Subject: Re: Need feed back from USCG and NOAA on potential changes to oil budget tool
I don't mean to be picky and its not a huge deal, but I made some modifications to the credits section here to better represent the folks involved with the Oil Budget Tool.
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I don't mean to be picky and it's not a huge deal, but I made some modifications to the credits section here to better represent the folks involved with the Oil Budget Tool.
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On Jul 31, 2010, at 4:14 PM, Mark Miller wrote:
Thanks Steve. Look forward to the call. I have attached the latest that has incorporated comments from many reviewers.
Stephen E Hammond wrote: Mark, Bill, Sean,
We have received guidance on how to proceed with changes to the Oil Budget Tool. EPA has made some suggested modifications that we need your input on to proceed. USGS as the developer and implementer of the product we need your direction and your guidance on extactly how the tool should describe the data that are used. We'd prefer your comments in writing to document changes. If you want to meet by phone we can use the bridge.
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I think that is is good to keep them separate. We can then include chemical dispersion with skimming, burning and collection (in the text) as our "response success" while still allowing us to lump chemical and natural dispersion together for both underwater oil and likely biodegradation.
4 of 26 9/27/2010 2:23 PM Re: Oil Budget Tool Update Complete - Draft Final with Report 1 1
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a k 007760
D p t r H r z n/BP l B d t l l t r h r d d th l
The National Incident Command has assembled the best scientific minds in the government and independent scientific community to produce an estimate of just how much oil has been skimmed, burned, contained, evaporated and dispersed. They have developed a tool, called the Oil Budget Calculator to determine where the oil has gone. The numbers are based on best estimates of how much oil was released and how this oil is moving and degrading.
D p t r H r z n l B d t ase o 60,000 a e s ay ow a e
Remai i g oi is ei e a e su ace as ig s ee o wea e e a a s as ee emica J y io eg a e o as Dis e se a ea y come % as o e Bu e 5%
kimme 3%
Figure 1: l Budget Calculator- Shows what has happened to the oil.
xpl n t n f F nd n
The Flow Rate Technical Group (FRTG), assembled by the National Incident Command, estimates that as of July 15, between 3-5 million barrels of oil had been released from the Deepwater Horizon/BP wellhead.
As shown in the pie chart (Figure 1), aggressive response efforts have been successful in recovering a significant portion of the spilled oil. 16 percent of the oil was captured directly from the wellhead by the riser pipe insertion tube and top hat systems. In addition, burning and skimming operations collected approximately 11 percent of the oil.
It is estimated that 25 percent of the oil volume quickly evaporated or dissolved into the water column. The volatile components of oil evaporate, while the components that are not volatile dissolve into the water column or form residues h tar balls. The evaporation rate estimate is based on scientific research and observations conducted during the Deepwater Horizon incident. A different evaporation rate is used for fresh and weathered oil to provide the most accurate number. 77 1
1 p r nt f th l h d p r d ph ll nt th t r l n nd p r nt f th l d p r d b th ppl t n f n rl 5 b rr l f h l d p r nt Ph l d p r n r r lt f th l n t f th br n r r p p t h h p d nt th t r l n h h d f t t pr ff n ll dr pl t (l th n 1 r n — th d t r f h n h r
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n th t n t r ll rr n b t r h v n d nd b d r d d n f nt nt f th l B t r th t br down the d p r d nd th r d rf l r n t r ll b nd nt n th Gulf f x n l r p rt b f th r t r th r th f v r bl n tr nt nd x n l v l nd th f t th t l nt r th lf f x thr h n t r l p r l rl h l th r r n l t b d n t nt f th x t r t f b d r d t n n th lf rl nd t n r th t th l ht r d l fr th ll b d r d n l
ft r nt n f r p r t n d p r n nd v p r t n 7 p r nt r n Th l th r t th rf l ht h n r th r d t r b ll h b n b d r d d r lr d h r n b h
n r b rn n n nd d r t r v r fr th llh d h v r v d r hl n rt r f th l r nd rt r f th t t l h b n n t r ll v p r t d nd j t l th n n rt r d p r d nt lf t r Th r n n nt j t v r n rt r n th rf n t r b ll n th h r lr d r v d fr th h r r h b n b d r d d
N nt n t tr th v nt f th r n n l t ll d l rf l tr j t r f r l n n r nd nt n b rf pl n t n t r th n ntr t n nd d tr b t n f l th r N r p nd r r r n th th n f d nd t d v l p n t r n tr t f r t r b ll nd n r h r b r d l
v n th h th thr t t h r l n h d r d n th pp n f th BP llh d f d r l nt t r n xtr l n rn d b t th p t t th lf t F ll nd r t nd n th p t f th p ll n ldl f h b t t nd n t r l r r n th lf r n ll t t nd nt n d n t r n nd r r h
N t n d r f nf d n n l l t n Th l B d t l l t n r b d n d r t r nt h r p bl nd th b t v l bl nt f t t h r r nt r n t p bl Th n b r f r d r t r v r nd b rn r r d d r tl nd r p rt d n d l p r t n l r p rt Th r t f th n b r r b d n pr v nt f n l b t v l bl nf r t n nd br d r n f nt f xp rt Th n b r ll nt n t b r f n d b d n dd t n l nf r t n nd f rth r n l
tt h nt 77
pp nd x Deepwater Horizon Gulf Incident Budget Tool Report from July 28, 2010, contains detailed explanation of calculation methods. The tool was created by the US Geological Survey in collaboration with US Coast Guard, NOAA, and NIST.
pp nd x B n l d nt 77 3
D p t r H r z n/BP l B d t l l t r h r d d th l Appendix B: Acknowledgements Authors
Jane Lubchenco, NOAA, DOC Marcia McNutt, USGS, DOI William Conner, NOAA, DOC Mark Sogge, USGS, DOI Steven Hammond, USGS, DOI
Credits
The following scientists were involved in developing the Oil Budget Calculator tool:
David Mack (USGS) — Lead application developer Jeff Allen (USGS) — Interface designer Bill Lehr (NOAA) — Lead mass balance and oil budget scientist LCDR Lance Lindgren and CDR Peter Hoffman (USCG) — Application requirements Steve Hale, Kent Morgan, Kevin Laurent, and Jerry McFaul (USGS) — Technical advisors Sky Bristol and Tim Kern (USGS) — Project vision and management Kevin Gallagher and Martha Garcia (USGS) — Executive sponsors
The Following Scientists created and reviewed the calculation methods used in the oil budget calculator:
F d r l nt t Bill Lehr, NOAA Robert Jones, NOAA Albert Venosa, EPA Antonio Possolo, NIST
nd p nd nt nt t Ron Goodman, U. of Calgary AI Allan, SpilTec James Payne, Payne Env. Tom Coolbaugh, Exxon Mobil Ed Overton, LSU Juan Lasheras, UCSD Mery Fingas, Env. Canada(ret) Ali Khelifa, Env. Canada Pat Lambert, Env. Canada Per aging, SINTEF David Usher, ISCO Peter Carragher, BP Michel Boufadel, Temple Univ.
Attachment D 5
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a k 006626
BP D p t r H r z n l B d t h t H pp n d T th l
Th N t n l n d nt nd ( bl d n b r f nt r n xp rt nt f t t t t th nt t f BP D p t r H r z n l th t h b n r l d fr th ll nd th f t f th t l Th xp rt f v rn nt nt t rv n n th t pl nt d b n n v rn nt l nd v rn nt l p l t r v n th l l t n nd n l n n t l l t d th fl r t nd t t l l r l d L d b n r r t r t v n h nd n t d t t l l rv ( D r t r r N tt th t nn n d n t 1 th t t t t th t t t l f 9 ll n b rr l f l h b n r l d fr th BP D p t r H r z n ll nd nt r n t l d b th D p rt nt f th nt r r (D nd th N t n l n nd t ph r d n tr t n (N d v l p d t l ll d th l B d t l l t r t d t r n h t h pp n d t th l Th l l t r th 9 ll n b rr l t t t np t nd b th d r t r nt nd th b t nt f t t v l bl t d t t d t r n h t h h pp n d t th l Th nt r n nt f r p rt b l b ld p n th l l t r nd r z th d p t n f th l t d t n r t t t d th t b rn n n nd d r t r v r fr th llh d r v d n rt r ( 5% f th l r l d fr th llh d n rt r ( 5% f th t t l l n t r ll v p r t d r d lv d nd j t l th n n rt r ( % d p r d ( th r n t r ll r r lt f p r t n r p dr pl t nt lf t r Th r d l nt — j t v r n rt r ( % — th r n r j t b l th rf l ht h n nd th r d t r b ll h h d h r r b n ll t d fr th h r r b r d n nd nd d nt l n th r d l nd d p r d t r n th pr f b n d r d d Th r p rt b l d r b h f th t r nd l l t n Th t t ll nt n t b r f n d dd t n l nf r t n b v l bl
Deepwater Horizon Oil Budget ase o es ima e e ease o 4. m a e s o oi
i ie Resi ua i c u es oi omma a is o o us e ow e su ace as ig Res o se s ee a wea e e e a io s a a s as was e Bu e as o e o ee 5% co ec e om e kimme s o e o is u ie i 3% sa a se ime s emica y Dis e se %
i i ese 3 ca ego ies is cu e y ei g eg a e a u a y
Figure 1: Oil Budget - Shows current best estimates of what happened to the oil. 006627
Explanation of Findings
Unified Command Response Efforts: R p n ff rt t d l th th l h v b n r v h n n th p h rt (F r 1 r p n ff rt r f l n ddr n 33% f th p ll d l Th n l d l th t pt r d d r tl fr th llh d b th r r p p n rt n t b nd t p h t t (17% b rn n (5% n (3% nd h l d p r n ( % D r t pt r b rn n nd n r v th l fr th t r nt r l h l h ll d p r d l r n n th t r nt l t b d r d d d d b l
Dispersion: B d n t t 1 % f th l d p r d n t r ll nt th t r l n nd % d p r d b th ppl t n f h l d p r nt n nd b l th rf N t r l d p r n r r lt f th l n t f th r r p p t h h p d nt th t r l n h h d f th l t pr ff n ll dr pl t F r th p rp f th n l d p r d l d f n d dr pl t th t r l th n 1 r n — b t th d t r f h n h r l dr pl t th t r th ll r n tr ll b nt nd th r n n th t r l n h r th th n b n t b d r d h l d p r n l br th l p nt ll dr pl t t p t fr rn n h r n l r rf l nd t r r d l v l bl f r b d r d t n h l d p r nt r ppl d t th rf nd b l th rf ; th r f r th h ll d p r d l nd d p b th d p n th t r l n nd j t b l th rf D p r n n r th l l h d th t th l ll b b d r d d b th n th t r l n nd t th rf nt l t b d r d d n t r ll r h ll d p r d l v n n d l t nt n b t x t v ln r bl p ll f th n t r ll d p r d l nd f th l th t h ll d p r d r n d ll-b l th rf n d ff l d h r t b n t d p t f rth r nd b d r d Pr v n l h v h n v d n f d ff l d f d p r d l b t n 3 3 nd 3 f t n v r l n ntr t n (p rt p r ll n r l v n n th d r t n f n n n rr nt nd d r n th d t n fr th llh d ( t t n F d r l J nt n l r p R p rt 1 nd http://ecowatch.ncddc.noaa.gov/JAG/reports.html) . l th t h ll d p r d t th rf v d nt th t p f t f th t r l n h r t x d th rr nd n t r nd b n t b d r d
Evaporation and Dissolution: t t t d th t 5% f th l v l l nd n t r ll v p r t d r d lv d nt th t r l n Th v p r t n nd d l t n r t t t b d n nt f r r h nd b rv t n nd t d d r n th D p t r H r z n n d nt
D l t n d ff r nt fr d p r n D l t n th pr b h h nd v d l h dr rb n l l fr th l p r t nd d lv nt th t r j t r n b d lv d n t r D p r n th pr b h h l r r v l f l r br n d n nt ll r dr pl t f l
Residual: ft r nt n f r th t r th t n b r d d r tl r t t d ( r v r p r t n d p r n nd v p r t n nd d l t n n t t d % r n Th f r b n t n f t r ll f h h r d ff lt t r r t t t n l d l t ll n r j t b l th rf n th f r f l ht h n r t r b ll l th t h h d h r r b n ll t d fr th h r nd th t b r d n nd nd d nt nd r rf thr h t Th l h l b n t d r d thr h n t r l pr
Biodegradation: D p r d l n th t r l n nd l n th rf f th t r b d r d n t r ll h l th r r n l t b d n t nt f th r t f b d r d t n n th lf rl b rv t n nd pr l n r r r h r lt fr n b r f nt t h th t th l fr th BP D p t r H r z n p ll b d r d n l nt t fr N P D nd d r r n t l l t r pr t t f th r t t ll n n th t b t r th t br d n th d p r d nd th r d rf l r b nd nt n th lf f x n l r part b f th r t r th f v r bl n tr nt nd x n l v l nd th f t th t l r l rl nt r th lf f x thr h n t r l p
xpl n t n f th d nd pt n
Flow Rate: Th l B d t l l t r t rt th n t t f th l t v nt f l r l d v r th r f th p ll Th n t t t r fl t th ll b r t v r nd d n f th N t n l n d nt nd Fl R t T hn l r p (FRT l d b n t d t t l l rv ( D r t r r N tt nd t f D p rt nt f n r (D nt t nd n n r l d b n r r t r t v n h Th r p t t th t ppr x t l 9 million b rr l f l fl d fr th BP D p t r H r z n llh d b t n pr l nd J l 15 1 t h h t th fl f l p nd d Th n rt nt f th t t + 1 % Th p h rt b v b d n th r p t t f 9 ll n b rr l f l
Direct Measures and Best Estimates: Th l b d t l l t n r b d n d r t r nt h r v r p bl nd th b t v l bl nt f t t h r r nt r n t p bl Th n b r f r d r t r v r nd b rn r r d d r tl nd r p rt d n d l p r t n l r p rt Th n n b r r l b d n d l r p rt d t t Th r t f th n b r r b d n pr v nt f n l b t v l bl nf r t n nd br d r n f nt f xp rt Th n b r ll nt n t b r f n d b d n dd t n l nf r t n nd f rth r n l F rth r nf r t n n th l l t n th d v l bl n th D p t r H r z n lf n d nt B d t T l R p rt fr 1 1 ( v l bl nl n Th t l r t d b th l l rv n ll b r t n th t rd N nd N T
nt n d n t r n nd r r h r n l d f th l d p r nt t p t nd h n p t ll nt n t v lv F d r l n nd n d nd nd p nd nt nt t r t v l p r n b tt r nd r t nd n f th f t tr n p rt nd p t f th l Th f d r l v rn nt ll nt n t r p rt t v t r lt nd d t t th p bl n r l r b pd t nd nf r t n n b f nd t www.restorethegulf goy, nd d t fr th r p n nd n t r n n b f nd t www.geoplatform.gov.
D N nd N nt n t r f n nd r t nd n f nt f remaining rf l N r p nd r r r n th th n f d nd n n t r n tr t f r t r b ll nd n r h r b r d l nd r r h r nt n b rf nn n nd pl n t n t r th n ntr t n d tr b t n nd p t f l th r P nd N h v r f ll n t r d BP f d p r nt n th lf nd nt n t n t r th r t r nd d nt n r th h r l n f r th pr n f d p r nt nd r d l p n nt th p l tt nt n t h n h lth p t N r N nd N F-f nd d d r r h r nd N nt t r nv t t n r t f b d r d t n t nd ldl f p t D nd D r p nd r r r n t n r ntr l f th ll nd 9
r t r nt f l r l d nd l r n n n th nv r n nt DOI l d n ff rt t t t p t f l t t rr tr l ldl f n t r l r r nd p bl l nd v n th h th thr t t h r l n f h nd ldl f nd t h d r d n th pp n f th BP llh d f d r l nt t r n xtr l n rn d b t th p t f th p ll t th lf t F ll nd r t nd n th p t f th p ll n ldl f h b t t nd n t r l r r n th lf r n ll t t nd nt n d n t r n nd r r h