The Clean Water Act
description
Transcript of The Clean Water Act
The Clean Water Act
Enforcing Environmental Law
SUNY Buffalo Law School
Conceptualizing Pollution
• Discharges– individual pipes and
stacks– individual firms– types of industry– watersheds
• Environmental Conditions– pollution
concentrations– ecosystem conditions– human health
Controlling Pollution
1. Property Rights -- Nuisance 2. Subsidies for Pollution Reduction3. Taxes on Pollution Production 4. Administrative Regulation – Rules and
Enforcement by Expert Agencies
Pre CWA regulation
• Based on state-promulgated WQ stds• Enforcement possible only when discharge
reduced ambient WQ below allowable level• Most water bodies involved multiple
polluters, so problems of proof were severe• Similar to nuisance law: post-hoc; multiple
causation, various defenses
Early Regulation• State Based • Water Quality Standards • Defined by Type of USE
• Human Consumption • Recreation • Agriculture• Industry
• Enforcement often limited to imminent hazards• Violations of WQ Standards often had multiple
causes • Therefore little actual enforcement
Early Federal Laws• 1899 Rivers and Harbors Act (“Refuse Act”): no
discharge into navigable waterway without permit• Mid-20th: Fed. Stats. promoting state
development of WQ stds.; but required showing– polluter causation – control capacity w/ reasonable cost
• 1960s: several prosecutions under Refuse Act • Nixon E.O. in 1970 to implement a permit
program• Congress passed CWA in 1972 over Nixon’s veto
CWA objectives
• Restore and maintain “chemical, physical and biological integrity of the nation's waters”
• fishable/swimmable by 7/1/83
• Total elimination of discharges by 1985
• Permits: BPT by 1977; BAT by 1983
• Elimination of toxic discharges
• Federal assistance for POTWs
• Planning processes • R&D• Non-point sources
Methods
• Regulatory Program– Law
• Rules and Permits • State/Federal cooperation • Primary Enforcement by States
• Public Works Program– Money – $12B+ federal money on POTWs
• Research and Information
Water Quality Standards
• Established by states (with EPA approval)
• Water quality must conform to designated use
• Overall CWA goal: fishable/swimmable
• Antidegradation Policy
• Typical Uses– Public water supplies– Propagation of fish and
wildlife– Recreational– Agricultural– Industrial
• Numerical Pollutant Concentrations– Milligrams/liter H20– EPA ‘Goldbook’
Discharge Permits
• No person can discharge any pollutant into waters of the U.S. without a permit
• Person: individuals, organizations, government bodies
• Pollutant: virtually anything
• Discharge: any addition of any pollutant to any water from any point source
• But: all of these things defined by various authorities
Requirements• Applications signed by responsible corporate
official– penalties for false or misleading statements
• Effluent Limitations: usually numerical • Discharge Monitoring Reports
– Data on actual discharges; usually defined by the permits
– Available to public• Subject to Revocation and Modification for
alterations in permitted activity and other reasons
Permits Based On?
• Water Quality or Health Effects– means/ends rationality– avoid over-protection
and under-protection– very difficult to work
out
• Control Technology– simpler to define and
enforce– may provide more or
less protection than necessary to meet goals
Conventional Pollutants
• nutrients• solids• organic waste• conductivity• Acidity (ph)• salts
• pathogens (coliform, fecal coliform, strep)
• oil and grease • dissolved Oxygen• BOD• heat
Toxic Pollutants
can cause death, disease, or birth defects
harm human or aquatic life
dose dependent may be transformed in
environment to be more or less potent
E.g. mercury, zinc,
chromium, nickel, cadmium, copper, silver, lead
hazardous wastes pesticides
Non-Conventional
don't fit the other two categories
ammonia chlorine color iron total phenols
“Point Sources”• “any discernible, confined
and discrete conveyance, including but not limited to any pipe, ditch, channel, tunnel, conduit, well, discrete fissure, container, rolling stock, concentrated animal feeding operation or vessel or other floating craft from which pollutants are or may be discharged.”
• pipes and spillways,• culverts• mining spoil piles• redeposit material from land
clearing• deep injection wells • cattle feedlots• raw sewage discharges from
privately owned septic systems
• stormwater discharges
General Types of Point Sources
• Direct Dischargers into water bodies
• Indirect Dischargers into pipes leading to treatment facilities– Pretreatment standards for indirect dischargers
discharging to POTWs– Removal credits allow indirect dischargers to
control less if POTW will achieve standard
POTWs
• “Publicly Owned Treatment Works”– Municipal sewage: residences, businesses, industry – Primary Treatment: physical removal– Secondary: Biological process: microbial oxidation
(like self purification of a stream)– Tertiary: Chemical treatment; allows direct reuse; very
costly, therefore rare – Combined Sewer Systems: storm runoff plus sewage;
Overlows
Non-Point Sources
• Everything that is Not a Point Source – (Some exempted by EPA
interpretive rule)• Typically result from
Land Use Activities• Primarily a state
responsibility
• Agriculture (return flows from irrigation)
• Forestry (runoff)• Urban development• Construction• Mining • City streets• Land disposal facilities• Atmospheric deposition• Underground storage
tanks [?]
State Plans for Non-Point Sources• ID areas that can’t meet
WQ Stds w/o NonPoint control)
• Designate critical watershed zones
• Select appropriate BMP and incorporate in plan
• Implementation Plan with deadlines
• Monitor and Evaluate• EPA approval
• States to set Total Maximum Daily Loads (TMDLs) for waters where effluent limits fail to result in attainment of WQ stds (include both point and non-point sources)
NPDES Permit Program• All point source
dischargers need permits
• Based on “Standards of Performance” (specific technologies not mandated)
• EPA criteria and permit guidelines (rules)
• (Delegated) States issue permits (adj.)– Effluent limits– Monitoring – Extensive record
keeping and reporting
NPDES Standards -1
BPT (best practicable control technology)– All point sources– First stage; interim criteria – All types of pollutants– Cost/benefit consideration
BCT (best conventional pollutant control tech; ‘77 amends) – Existing sources– Conventional pollutants – Average of best technology
in use – Cost also considered;
should be economically reasonable
NPDES Standards - 2BAT (best available
technology econom-ically achievable)– Existing Sources – Toxic and non-
conventional pollutants – Best existing technology
in use– Based on optimally
operating plants – More stringent
• BDT (Best Demonstrated Control Technology) (sometimes “NSPS”) – New Sources– Greatest possible degree of
effluent reduction w/ best available demonstrated technology, processes, methods, and other alternatives
– To outperform existing sources
– Technology forcing– Often the same as BAT
NPDES general
• Large EPA discretion • Receiving water (creek versus ocean)
generally not relevant • Feasibility for individual company not
relevant • Role of cost unclear, although EPA may
often in practice consider it (“highest standard industry can tolerate”)
NPDES Process
• Development Documents: info about technologies, etc.
• Rulemaking: Set Effluent Limitation Guidelines
• Permit
Variances
• Possible, but uncommon Companies have gone out of business b/c of
inability to meet standards and denial of variances
• FDF: only where operate in fundamentally different fashion than tested industry– No less stringent– No more serious environmental impacts
Other Variances
• Thermal discharge: where aquatic life won't in fact be hurt
• Pretreatment: indirect dischargers use innovative control systems
• Deep-water: for discharges into deep or strong tidal waters
Wetland Program
• Section 404: no dredging or filling w/o permit: dredged is taken out; fill is put in
• Managed by Corps of Engineers (goes back to navigation focus)
• Sample exemptions– Farm ponds; irrigation and drainage ditches– Temporary sediment basins– Construction of farm roads, forest roads
Defenses
• Bypass: supposedly intentional diversion of water; such as for essential maintenance; must be unavoidable to prevent loss of life, etc.
• Upset: exceptional incident– Facility working properly at time– Beyond control: e.g., flood; third- party
interference
Enforcement
• Any non-permitted discharge is actionable– no need to show harm or negligence
• Proof of violation may come from firm’s own required records
• States have primary enforcement responsibility but EPA can also enforce state or federal stds.
Remedies - 1
• Compliance orders by agency• Administrative Penalties
– Class I: < $10,000 per violation; max. $27,500• Informal hearing
– Class II: up $10,000 per day for each day of violation; max of $125,000
• Formal hearing under §554
Remedies - 2
• Civil -- $25,000 per day per violation– Plaintiffs:
• State or Federal Government• Citizen Suits – these have often been the most
important drivers in the system
• Criminal – negligent– knowing -- very severe for “imminent danger”
Continuing Issues
• Enormous improvement, but– 40% of waters too degraded for swimming or
fishing • Bioaccumulative toxins, such as dioxin • Endocrine disruptors/hormone mimics• Pharmaceutical drugs in waste streams• Many remaining toxic hotspots • Enormous non-point source pollution