Science, and transportation united states senate

strengthen the power of the statistical analysis ;

(/) To obtain well documented scientific evidence that may lead

to the optimization of the effects of seeding. For this purpose a

series of systematic cloud physics measurements should be taken

on a routine basis. This would allow the application of statistical

stratification techniques to relevant physical parameters, and

could shed more light on the quantitative aspects of the seeding

technique ;

(g) To be able to make some recommendations about the ap-

plicability of the PEP procedures to other areas of the world;

and

precipitation enhancement activities both within and outside the

experiment target area. 20

The plan for PEP is divided into three phases. A preparatory and

site selection phase of at least 2 years will develop criteria for the

selection of regions and sites, develop the plan for the precipitation

enhancement experiment, and select the sites to be used. This phase has

already begun. The second phase will be the actual scientific field

experiment and will last 5 years. The third phase will be an evaluation

of the results. While this will begin during the second phase, it will

extend 1 year beyond the end of the phase two. 21

PEP will be funded by members on the basis of their participation

and by the individual efforts of interested members. The WMO budget

will fund only the costs related to international coordination and guid-

ance and not the experiment itself or its evaluation. The main role of

the WMO is to encourage members in the cooperative effort, to safe-

guard the scientific integrity of the program, to insure that it is con-

ducted in the best possible way, and to disseminate the results to inter-

ested members. WMO will support three separate groups responsible

for the international coordination and guidance aspects of the experi-

ment as follows :

(a) The Precipitation Enhancement Project Board should be

an intergovernmental Board consisting of representatives of mem-

bers making the major contributions to the project and to which

observers from interested UN organizations and ICSU should be

invited. The Board will represent the main management body;

proposing plans of action to the Executive Committee within the

limits of available financial resources;

(b) The Executive Committee Panel on Weather Modification

with supplementary expertise as necessary will provide the Execu-

tive Committee and the Secretary-General with advice on details

of the objectives of PEP and how these could be achieved in

principle. It should guide the preparation of the plans to be re-

viewed by the Board ; and

(c) The Scientific Planning Group at WMO headquarters will

work on PEP as a part of the WMO Research and Development

Programs, using the available experience and support of the

20 Ibid., p. 2.

21 Ibid., p. 3.

436

Group should decide upon the relationships between the Scientific

Planning Group, the PEP Board, and the Executive Committee

Panel on Weather Modification. 22

OTHER WMO ACTIVITIES IN "WEATHER MODIFICATION"

Other WMO activities have paralleled U.S. domestic activities in

weather modification. These have included conferences of experts,

registration of weather modification activities of member nations, and

the problems of liability for potential damage caused by weather modi-

fication activities.

Registration and reporting of tveather modification projects

One important effort of the WMO has been in the area of registration

of weather modification projects. Beginning in 1973, the WMO began

sending questionnaires to member nations asking them to report on

their weather modification activities. While compliance with this re-

quest was completely voluntary, well over half of the members did

report on their activities. In 1975, as part of the weather modification

program adopted by the WMO Congress, the WMO Secretary General

was required to maintain a register of experiments and operations in

the weather modification field carried out within member countries.

Out of a total 1975 membership of 138, 74 nations replied and 16

reported weather modification activities. Parts of the most recent re-

port, covering activities for calendar year 1976, are included and

discussed in the chapter on foreign activities. (See chapter 9.)

WMO conferences on weather modification

The WMO has sponsored two conferences on weather modification.

These were preceded by another international conference, which was

sponsored jointly by the Australian Academy of Science and the

American Meteorological Society and was held in Canberra, Australia,

from September 6 through 11, 1971. The first WMO international

conference on weather modification, sponsored jointly with the Inter-

national Association of Meteorology and Atmospheric Phvsics, was

held in Tashkent, U.S.S.R., on October 1 through 7, 1973." The con-

ference included 270 participants from around the world, both from

countries with active weather modification programs and from those

only interested in the subject. The conference covered fog dispersal,

rain and snow enhancement, hail suppression, modification of tropical

storms and thunderstorms, technical and operational aspects of weath-

er modification, physical, statistical and economic evaluations of

weather modification and ice nucleus technology. 23 A second conference,

sponsored by WMO with the National Oceanic and Atmospheric Ad-

ministration, the International Association of Meteorology and At-

mospheric Physics, the American Meteorological Society and the

22 List. Roland, "Objectives and Status of the WMO Precipitation Enhancement Project

(PEP)." Department of Physics, University of Toronto, Toronto, Ontario, Canada, p. 6,

(Unpublished paper provided bv National Oceanic and Atmospheric Administration.)

m The proceedings of this meeting were published by the WMO in 1974, WMO publication

No. 399, Geneva, Switzerland.

437

Australian Academy of Sciences was held in Boulder, Colo., from

Typhoon and serious storm modification

Another area of weather modification activity, typhoon and serious

storm modification, has also been an area of concern to the WMO. Sev-

eral efforts at learning about and controlling typhoons or tropical cy-

clones have been jointly sponsored by the WMO. Together with the

Economic Commission for Asia and the Far East of the United Na-

tions (now the Economic and Social Commission for Asia and the

Pacific), the WMO has established a Typhoon Committee which con-

centrates on improving civil preparedness against typhoon damage.

Because so little is understood about typhoons, most of the activities

undertaken have been research and the collection and analysis of

meteorological information about tropical weather.

A WMO sponsored Technical Conference on Typhoon Modification,

which was held in Manila in October of 1974, endorsed a 24-hour limit

on typhoon modification experiments, which would permit experi-

mental seeding of typhoons if they were not expected to reach land

within 24 hours. 23 A 1972 resolution of the UN General Assembly

praised the efforts of the WMO in this area and requested the WMO to

keep the UN informed of progress in its tropical cyclone project. 26

Global Atmospheric Research Programme

, An important project sponsored jointly by WMO and the Interna-

tional Council of Scientific Unions is known by the acronym GARP

for Global Atmospheric Research Programme. This is an information

gathering and research project, rather than a weather modification

project per se. The data from GARP is expected to contribute to the

development of long-range weather prediction and the development

of large scale weather modification theories. Hopefully, successful new

methods of weather forecasting will emerge from this program and

the new information can be used to carry out computer simulations of

weather modification activities on a global scale. GARP is expected to

complement the worldwide measurement of atmospheric particulates

and gases to be undertaken as part of the Earthwatch Program of the

U.X. Environment Program established by the Stockholm conference.

Legal aspects of weather modification

The WMO and the United Nations Environment Program jointly

sponsored an informal meeting on the legal aspects of weather modifi-

cation in Geneva, Switzerland during November 17 to 21, 1975. This

meeting had a double purpose. First, the group was asked to consider

the formulation of legal principles for weather modification, bearing

in mind the principles adopted at Stockholm in 1972. (See the fol-

lowing section on United Nations Conference on the Human Environ-

ment.) Second, the group was asked to give particular consideration to

legal liability of the WMO regarding the precipitation enhancement

program, then in the early planning stages. The principles considered

but not adopted are contained in the mimeographed report of the

meeting, pages 5 through 8, which is reproduced as appendix Q.

24 The WMO publication on this conference was entitled. "Papers Presented at the Second

WMO Scientific Conference on Weather Modification," WMO-No. 443, Geneva, Switzerland,

1976.

ment on typhoon moderation, mimeographed WMO document.

26 United Nations document No. A/Res/2914 (XXVIII) Nov. 13, 1972.

438

The' United Nations Conference on the Human Environment, held in

Stockholm, Sweden, from June 5 through 16, 1972, has been the pivotal

point in much recent international environmental activity, and it has

also been an important catalyst in international activities relating to

weather modification. Conferences held in preparation for the Stock-

holm Conference and programs initiated by it are the major coopera-

tive weather modification activities of the 19T0 7 s, and it is the interna-

tionally agreed upon principles adopted at Stockholm which are being

considered in the development of international legal principles apply-

ing to cooperative weather modification activities. Many of these activi-

ties are discussed in other sections. The Conference adopted an "Action

Plan for the Human Environment" based on a "Declaration" agreed to

by the participants.

DECLARATION OF THE UNITED NATIONS CONFERENCE ON THE HUMAN

ENVIRONMENT

The declaration consists of a preamble and 26 principles of conduct

intended to serve as guides for states in dealing with environmental

problems of international significance. Principles 21 and 22 particu-

larly ali'ect weather modification activities. Principle 21 deals with

state responsibility for damage to the environment of other nations,

and principle 22 calls on states to cooperate in developing international

law regarding liability and compensation for such damage. The two

principles are :

"Principle 21

"States have, in accordance with the Charter of the United Nations

and the principle of international law, the sovereign right to exploit

their own resources pursuant to their own environmental policies, and

the responsibility to insure that activities within their jurisdiction

or control do not cause damage to the environment of other states or

of areas beyond the limits of national jurisdiction.

"Principle 22

"States shall cooperate to develop further the international law re-

garding liability and compensation for the victims of pollution and

other environmental damage caused by activities within the jurisdic-

tion or control of such states to areas beyond their jurisdiction." - T

ACTION PLAN FOR THE HUMAN ENVIRONMENT

The action plan consists of some 200 recommendations for national

and international action — a framework for future environmental

agreements. Although much of the action plan relates to weather more

generally and pollution of the air and water, one recommendation in

27 U.S. Congress, Senate. Committee on Foreign Relations. "United Nations Conference on

the Human Environment," report to the Senate by Senators Claiborne Pell and Clifford

Case, members of the delegation to the United Nations Conference on the Human Environ-

ment. October 1972. 92d Cong., 2d sess., committee print, Washington, U.S. Government

Printing Office, 1972, p. 18.

439

particular applies to climate modification. Recommendation 70 reads

It is recommended that Governments be especially mindful of activities in

which there is an appreciable risk of effect on climate ; and

(a) Carefully evaluate the likelihood and magnitude of climatic effects and,

to the maximum extent feasible, disseminate their findings before embarking

on such activities ;

(b) Consult fully other interested states when activities carrying a risk of

such effects are being contemplated or implemented. 28

In discussing this provision, Senators Claiborne Pell and Clifford

Case, members of the U.S. delegation to the Conference, criticized

what they saw as an amendment which "considerably weakened'' the

provision. This amendment, introduced by the United States and

adopted by the Conference, added the phrase "to the maximum extent

feasible" to section (a) as printed above. Concerning this amendment,

the Senators' report states :

The U.S. amendment appears to provide a loophole whereby any country could

conduct covert military weather modification operations without any form of

international control or responsibility. This, we feel, is contrary to a resolution

which we and 14 other Senators have introduced in the Senate which expresses

the sense of the Senate that the U.S. should seek the agreement of other govern-

ments to a proposed treaty prohibiting the use of any environmental modification

activity as a weapon of war. We adamantly oppose the use of environmental tech-

niques as weapons of war and strongly urge the Administration to actively pro-

mote the negotiation and ratification of such a treaty. 29

The resolution referred to in the above quotation, and the discussion

surrounding its passage, are discussed in the section on congressional

activities.

EARTH WATCH PROGRAM

The major project developing from the Stockholm Conference in

the area of atmospheric changes is the Earthwatch program. While the

program as a whole is designed to assess global environmental condi-

tions in all areas from water pollution to food contamination, one of its

first projects will be to measure pollution levels around the world and

study their effects on climate * * * the inadvertent modification of

weather. The Earthwatch program which will be set up under the

auspices of the World Meteorological Organization, will consist of the

following major elements :

Ten baseline stations to measure the long term global trends which

may ultimately cause climate changes. These stations would be estab-

lished in remote areas far from any sources of pollution.

One hundred additional stations to monitor the air quality on a

regional basis. This monitoring will be coordinated by the WMO.

Establishment of water borne stations to measure containments in

major rivers, lakes, and seas.

Establishment of research centers and biological centers to analyze

changes in soil conditions and plant and animal life.

STUDY OF MAX'S IMPACT OX CLIMATE

Of the many conferences and preparatory meetings held prior to the

Stockholm Conference, one in particular is noteworthy. In 1970, sup-

28 Ibid., p. 36.

» Ibid., p. 5.

440

zation,' 30 scientists from 14 countries participated in the Study of

Man's Impact on Climate (SMIC), sponsored by the Massachusetts

Institute of Technology and hosted in Sweden by the Eoyal Swedish

Academy of Sciences and the Eoyal Swedish Academy of Engineering

Sciences. 30 The purpose of the study was to provide an authoritative

assessment of the state of scientific understanding of the possible im-

pacts of man's activities on the regional and global climate. Based on

this assessment, specific recommendations were developed for programs

that would provide the knowledge necessary for more definitive an-

swers in these complex areas. Many of these recommendations were

incorporated into the Action Plan for the Human Environment. One

in particular bears mentioning separately. This suggested "that an

international agreement be sought to prevent large-scale (directly

affecting over 1 million square kilometers) experiments in persistent or

long term climate modification until the scientific community reaches

a consensus on the consequences of the modification. 31

Other International. Activities

united states/canadian agreement

The Agreement between the United States of America and Canada

Relating to the Exchange of Information on Weather Modification

Activities was signed and entered into force on March 26, 1975. 32 The

agreement provides that the United States and Canada will exchange

information on weather modification activities occurring within 200

miles of their common border or wherever else they may occur if it is ex-

pected that the activities will affect the "composition, behavior, or

dynamics of the atmosphere over the territory of the other Party."

When possible, this information will be transmitted to the other party

prior to the beginning of the activities.

NORTH AMERICAN INTERSTATE WEATHER MODIFICATION COUNCIL 33

The North American Interstate Weather Modification Council

(XAIWMC) was organized on January 17, 1975, by representatives

of the governments of several U.S. States and Canadian provinces and

the Mexican Government. Its purpose is to coordinate and serve as a

focal point for intrastate, interstate, and international weather modi-

fication activities. This would include research into weather modifica-

tion, legislation and treaties governing weather modification activities,

and public information activities as well as its coordination functions.

Membership is open to any state or province of the United States,

Canada, and Mexico.

Affiliate membership is available to national agencies, political sub-

groups within the States, professional organizations and scientific

w "Study of Man's Impact on Climate," Stockholm, 1970, inadvertent climate modifica-

tion ; report, Cambridge, Mass., MIT Tress, 1971.

a 1 Ibid., p. 19.

32 20 UST 54 ; TIAS 8056, reproduced in app. F.

33 Tills information is taken from a document entitled : "Weather Modification. North

American Interstate Weather Modification Council. 'Its purpose and activities'." Office of

the NAIWMC, Executive Secretary, Box 3CE, NMSU, Las Cruces, N. Mex., 88003 Septem-

ber 1970, publication No. 76-2.

441

societies. Current membership of NAIWMC consists of 15 members

has taken an active role in legislation (including testifying) proposed

at both the State and Federal level concerning weather modification.

Additionally, NAIWMC has supported directly or indirectly five in-

terstate conferences on weather modification and made the proceedings

of the conferences available to the public. 34

Congressional Activities

Although congressional interest in domestic weather modification

activities has grown steadily for many years, interest in the interna-

tional aspects is more recent. With the exception of one resolution dis-

cussed in the following section, all such activities in the Congress have

taken place since 1970.

WEATHER MODIFICATION AS A WEAPON OF WAR

Senate Resolution 71, prohibiting environmental modification as a

weapon of war

In December 1971, Senator Claiborne Pell inserted a statement in

the Congressional Record indicating his concern over the possible use

by the United States of precipitation enhancement (rainmaking) in

Southeast Asia and the future use of these and other weather modifi-

cation techniques in warfare. He expressed concern that such activities

carried on by any countries for other than peaceful purposes might

endanger international cooperation in peaceful weather collection

and modification activities. The Senator urged that the United States,

through the President, renounce the use of geophysical and environ-

mental research for other than peaceful purposes and take the initia-

tive in framing and introducing a treaty imposing a prohibition on

all forms of geophysical and environmental warfare. Senator Pell

said he would introduce a resolution setting forth a draft treaty on

weather modification in order to generate discussion and action in

this area.

At the time of Senator Pell's statement, the Department of Defense

had completed several precipitation enhancement projects for Govern-

ment agencies both in the United States and abroad.

Several news columnists had claimed that precipitation enhance-

ment had been used in Vietnam in articles appearing early in 1971,

and these operations were later mentioned in the Pentagon papers,

which were released in June 1971. On January 26, 1972, Senator Pell

inserted in the Congressional Record his correspondence with the De-

partment of Defense in attempting to confirm or deny the newsmen's

allegations. 35 After several months of correspondence, the Defense

Department declined to answer the questions publicly on the basis

that such a reply would threaten the national security. Senator Alan

Cranston and Congressman Gilbert Gude received the same response