Potential Reinterpretation of a

Clean Water Act Provision Regarding Tribal 

Eligibility to Administer Regulatory 

Programs 

USEPA Office of Science and Technology

May 2014

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This Presentation Covers...

• Key Terms

• Issue & Purpose 

• TAS Provision of the Clean Water Act

• Current Interpretation of TAS

• Potential Reinterpretation of TAS

• Working Schedule

• For More Information

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Key Terms

• CWA – the Clean Water Act 

• TAS – treatment of tribes in a similar manner to a state, for the 

purposes of administering EPA programs.

• Tribe – one of the 566 Indian tribes that are federally recognized, of 

which over 300 have reservations.

• Reservation – either a formal reservation or tribal trust land outside 

of a formal reservation.

• Nonmember fee lands – lands within a reservation that are owned 

outright (“in fee simple”) by nonmembers of the tribe.

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Key Terms

• Regulatory program – one of the following CWA programs: 

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• Sec. 303(c) water quality 

standards

• Sec. 303(d) listings and TMDLs

• Sec. 401 water quality 

certifications

• Sec. 402 NPDES permits

• Sec. 404 dredge or fill permits
Issue

• EPA took a cautious approach in 1991 when it interpreted a CWA 

provision to mean that each tribe seeking TAS must demonstrate 

its own inherent regulatory authority. 

• The demonstration has proven to be the most challenging and 

resource-intensive element of a TAS application, and may be one 

cause of a slowdown in TAS applications and approvals for CWA 

regulatory programs.

Purpose

• To describe a potential reinterpretation of the CWA’s TAS 

provision that EPA is considering. The reinterpretation could 

significantly reduce the burden on individual tribes applying for 

TAS.

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TAS Provision of the CWA

• Section 518 of the Clean Water Act authorizes EPA to treat a tribe in the 

same manner as a state for purposes of a regulatory program if the tribe:

• EPA has issued program-by-program regulations specifying:

• The information a tribe must submit when applying for TAS 

• The process EPA must follow in acting on a TAS application

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1. Is federally recognized and has a reservation.

2. Has a governing body carrying out substantial governmental 

duties and powers.

3. Has appropriate authority to regulate the quality of 

reservation waters. 

4. Is reasonably expected to be capable of carrying out the 

functions of the program.
TAS Provision of the CWA

Results to date:

• Regulatory programs

303(c) WQ standards and 401 certifications............................48 tribes approved

303(d) listings/TMDLs..........................................TAS process under consideration

402 NPDES..........................................................some interest, no tribes approved

404 dredge or fill.............................................limited interest, no tribes approved

• Grant programs*

106 management programs.....................................................266 tribes approved

319 nonpoint source management.........................................180 tribes approved

*Grant programs are not discussed further in this presentation. Tribal grant applicants do not need to 

demonstrate regulatory jurisdiction.

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Current Interpretation of TAS

In 1991,* EPA interpreted the CWA TAS provision to mean:

• A tribe must demonstrate its inherent regulatory authority

to be eligible for TAS for a regulatory program.

• A tribe with nonmember-owned fee lands needs to meet the 

“Montana” test.

Generally includes a factual demonstration that nonmember activities on 

nonmember-owned fee lands could have a substantial, direct effect on 

the tribe’s health or welfare. See Montana v. U.S., 450 U.S. 544 (1981)

*The interpretation appeared in a CWA TAS rule preamble, 56 FR 64895, 12-12-1991. At the time, 

EPA recognized that other interpretations were available, but chose a cautious approach pending 

subsequent developments that could warrant reconsideration.

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Example of “nonmember activities on nonmember-owned fee lands that 

could have a substantial, direct effect on the tribe’s health or welfare”

Reservation

Nonmember fee lands

X = industrial facility 

discharging treated

wastewater to tribal

waters

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X

Current Interpretation of TAS
Potential Reinterpretation of TAS

• EPA is considering reinterpreting CWA section 518 as an express 

delegation by Congress to eligible tribes to administer CWA 

regulatory programs over their entire reservations irrespective 

of who owns the land.

• This would replace EPA’s current interpretation that a tribe 

must demonstrate its inherent regulatory authority. 

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The potential reinterpretation is supported by: 

• The plain language of Clean Water Act section 518

• A similar approach applied in implementing the Clean Air

Act TAS provisions

• Relevant judicial cases since 1991

• EPA’s experience since 1991

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Potential Reinterpretation of TAS
EPA would accomplish the reinterpretation by issuing an 

interpretive rule after soliciting and considering public 

comments.

• The reinterpretation would replace EPA’s 1991 interpretation.

• The interpretive rule would include a revision to EPA’s current 

guidance for tribal applications.*

• Neither the CWA statutory language nor EPA’s implementing 

regulations would be revised; all existing regulatory requirements 

will remain. 

*Current guidance: Strategy for Reviewing Tribal Eligibility Applications to Administer EPA 

Regulatory Programs, EPA, 2008, http://www.epa.gov/indian/laws/tas.htm, Attachments B and C 

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Potential Reinterpretation of TAS
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EPA regulations require the tribe to demonstrate that it...

Current 

Interpretation

After Reinterpretation

1. Is federally recognized and has a reservation.

2. Has a governing body carrying out substantial 

governmental duties and powers.

3. Has appropriate authority to regulate the quality of 

reservation waters. 

• Tribe must provide a map or legal description of 

reservation boundaries

• Legal counsel must describe the basis of the 

tribe’s authority by...

Demonstrating 

inherent 

authority* and, if 

fee lands on 

reservation, 

meeting the 

Montana Test

Relying on the 

Congressional 

delegation of 

authority

• Tribe must identify the surface waters to be 

regulated

4. Has (or has a plan for developing) the capability to 

administer the program

*As specified in EPA’s 1991 preamble and current guidance

Potential Reinterpretation of TAS
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Comment rounds for tribes to set Water 

Quality Standards:

Comments 

from

Current 

Interpretation

After Reinterpretation

• EPA seeks comments on tribal 

application’s assertion of authority

Appropriate 

govt. entities, 

local parties

• EPA seeks comments on EPA’s factual 

findings concerning inherent tribal 

authority

Appropriate 

govt. entities, 

local parties

(Not 

needed)

• Tribe seeks comments on its water 

quality standards before submitting to 

EPA for approval

Public

Potential Reinterpretation of TAS

Comment round for tribes to issue Sec. 402 

or 404 Permits:

• EPA seeks comments on tribe’s permit 

program application (including TAS 

elements)

Public
Recap of potential changes:

• Replace demonstration of inherent regulatory authority with 

reliance on the Congressional delegation of authority

• Remove one of three rounds of comments for tribes to set WQS

Recap of what would stay the same:

• All other TAS eligibility requirements established in the Act and 

EPA’s regulations 

• All other opportunities for comment before final EPA action

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Potential Reinterpretation of TAS
One effect could be a significant reduction in the time and effort 

for tribes to apply for TAS:

• The inherent authority demonstration has been challenging and 

resource-intensive.

• Montana tests alone have added an average 2.3 years to a tribe’s TAS application 

process for the water quality standards program.

• Under the Congressional delegation approach, the process would be 

simplified:

• A tribe would generally be able to rely on the Congressional delegation of 

authority, but would need to address any potential impediments to effectuating 

the delegation (generally an unusual circumstance).

• Eliminate development and review of EPA’s factual findings concerning the 

tribe’s inherent authority over nonmember activities.

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Potential Reinterpretation of TAS
Working Schedule

• Letter initiating tribal consultation/coordination.............April 18

• Tribes-only consultation/coordination webinars........May 22, 28

• Pre-proposal tribal consultation/coordination ........ends June 20

If EPA decides to proceed:

• Proposal of interpretive rule in Federal Register............Fall 2014

• Public comment period (60 days)............................start Fall 2014

• Post-proposal tribal consultation/coordination.......................TBD

• Issue final interpretive rule in Federal Register...............Fall 2015

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SUBJECT TO CHANGE
For More Information

• To view this presentation and related materials: 

http://water.epa.gov/scitech/swguidance/standards/wqslibrary/tribes_index

.cfm

• To ask questions or provide comments/views, please email: 

TASreinterpretation@epa.gov

• To discuss the national consultation process, please contact: 

Beth Leamond, Leamond.Beth@epa.gov

(202) 566-0444

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COMING SOON
For More Information

EPA contacts:

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Region 1 – Ellen Weitzler, 

weitzler.ellen@epa.gov

Region 2 – Wayne Jackson, 

jackson.wayne@epa.gov

Region 4 – Eve Zimmerman, 

zimmerman.eve@epa.gov

Region 5 – Kathleen Mayo, 

mayo.kathleen@epa.gov

Region 6 – Diane Evans, 

evans.diane@epa.gov

Region 7 – Amy Shields, 

shields.amy@epa.gov, 

Ann Lavaty, lavaty.ann@epa.gov, 

Region 8 – George Parrish, 

parrish.george@epa.gov

Region 9 – Wendell Smith, 

smith.wendell@epa.gov

Region 10 – Maja Tritt, 

tritt.maja@epa.gov

Headquarters – Fred Leutner, 

TASreinterpretation@epa.gov
Any Questions?

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Comments and Views from Tribes

Consider the following questions:

• Should EPA proceed with this action to reinterpret TAS?

• Do you think this potential TAS reinterpretation would 

encourage your tribe to apply for TAS if it has not done?

• For tribes that have TAS status, do you think this would have 

reduced your time and effort? 

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After today’s webinar, we welcome any further 

tribal input by June 20, including:

Questions, comments, views from...

• The 60+ tribes with direct experience in the WQS TAS process.

• Tribes that have considered but not pursued TAS for regulatory 

programs.

• Any other interested tribes.

• Consultation input from tribal leaders or their designees.

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Write:

Corey Buffo, Chief

Regional, State and Tribal Standards Support 

Branch (mail code 4305T)

Office of Water 

U.S. Environmental Protection Agency

1200 Pennsylvania Avenue

Washington, DC 20460

Email:

TASreinterpretation@epa.gov

For Consultation:

• Regional contact

• Beth LeaMond in HQs

(202) 566-0444

Leamond.beth@epa.gov