The Environmental Protection Agency announced May 27, 2015 the final Rule to clarify the definition of waters protected under the Clean Water Act. Predictably a News Release was issued entitled “Clean Water Rule Protects Streams and Wetlands Critical to Public Health, Communities, and Economy.” If you didn’t know what the Rule was about in advance then you certainly wouldn’t be able to discern it from the Press Release. Having followed the issue for many years, I will offer a short explanation of what this Rule is and why it was issued. In future posts I will write about the science used in making the Rule.
Let’s start with the Clean Water Act. It was written in 1972, over forty years ago now. But just like today, the legislation was written by Congress. Congress often writes very vague legislation from which the federal agencies are then tasked with developing regulations. Agencies have to interpret Congress’s meaning and intent. Sometimes the federal agency writes regulations that don’t exactly meet the wording of the legislation. When the Agency goes to enforce the regulation they then get sued by the person or company being enforced upon. More or less that is why the Clean Water Rule was written.
The Clean Water Act makes it unlawful to discharge dredged or fill material into “navigable waters” of the United States, tributaries of such waters and adjacent wetlands without a permit. There are regulations that the cognoscenti in the environmental world call the 404(d) regulations. The 404(d) regulations require permits for discharge of dredge and fill material. The regulations expanded upon what was written in the Clean Water Act by including interstate wetlands, lakes, rivers, streams (including intermittent streams), mudflats, sandflats, wetlands, sloughs, prairie potholes, wet meadows, playa lakes, natural ponds, tributaries of such waters and adjacent wetlands. That covers a lot of territory. The agency responsible for issuing 404(d) permits is not the Environmental Protection Agency. It is the United States Army Corps of Engineers. Go figure. Anyway they have offices all over the United States just like all the other federal agencies and these individual offices have to interpret what the regulations mean when they are reviewing a permit or looking at a potential violation.
In Michigan in 1989, some wetlands on private land were filled by a developer. The wetlands were near ditches that eventually emptied into navigable waters. The Corps of Engineers said it was a violation of 404(d) regulations and fined the developer. The serious thing about the Clean Water Act though is that it has criminal violations as well as civil penalties. So you can get into a lot of trouble with not getting a federal permit. The developer sued. The lower courts ruled in favor of the Corps of Engineers. The developer appealed to the Supreme Court. The case is called Rapanos versus the United States. It was argued in front of the Supreme Court on February 21, 2006 and a decision was issued on June 19, 2006. The arguments and decision included another case called the Carabell case where a permit to deposit fill in a wetland separated from a drainage ditch by an impermeable berm was denied.
Anyway the Supreme Court decision was to send the cases back to the lower courts because they had applied the wrong standard to determine if wetlands are covered as “waters of the U.S.” and also because there was a lack of record by the lower court in their decision. The decision contained an opinion by Justice Scalia which was the most scathing Supreme Court opinion I have ever read. There were probably two reasons behind the tone of the opinion. First the Clean Water Act forthrightly states that the State governments have primary responsibility and right to plan the development and use of land and water resources and it is not the Clean Water Acts intent to change that responsibility. Management of land use and water resources is a jealously guarded privilege of State governments and these two cases as well as others seemed to be getting into a federal management of private land use and water. The second reason is because the Supreme Court had heard a similar petition back in 2001 called the SWANNC case, which is the Solid Waste Agency of Northern Cook County versus the Army Corps of Engineers. I won’t bore you with the particulars of the case but the Supreme Court’s decision said the scope of the Corp of Engineer’s regulations was inconsistent with the Clean Water Act. So you can see why Justice Scalia might be a little testy. After the SWANNC case decision, the Corps of Engineers and the Environmental Protection Agency did initiate a rule making but it went nowhere. I don’t have the inside scoop on why.
So some years after the 2006 decision by the Supreme Court, the rule making initiative started up again. The first time I heard about the new rule making initiative was in 2009 at a meeting of a large gathering of state water officials. A poor guy from the Environmental Protection Agency came to the meeting and presented the agency’s plans in regard to writing the Clean Water Rule. There was nearly a riot. Well maybe I’m exaggerating a little, but he was told that the Environmental Protection Agency didn’t need to be addressing water issues that were clearly the state’s purview. There has been constant concern from state governments about federal regulation intruding into state water management. There have been concerns about the extent of coverage by the Clean Water Rule from farmers, natural resource developers, property developers…literally anyone who has large land holdings.
The Clean Water Rule is therefore written to say as much about what it doesn’t apply to as to what it does apply to. The Rule is nine pages. Two pages tell you what is covered under the meaning of “Waters of the United States.” and two pages tell you what isn’t covered under the meaning. The rest of the Rule is definitions of terms used in the other four pages. This is a carefully crafted and wordsmithed Rule.
Here is a link (http://www2.epa.gov/cleanwaterrule/clean-water-rule-factsheets) to an Environmental Protection Agency Fact Sheet that tells you what is covered in the new Clean Water Rule.
