THI RD DI VI SI ON

ELLI NGTON, P. J.

, RA Y and BETHEL, JJ.

N O T IC E : M otions for r e c ons i de r a tion m us t be ph y sic a l ly r e ce iv ed i n our c le r k ’s offic e w ithin te n da y s of the da te of de c is ion to be de e m ed tim e ly file d.

http://w w w .ga a ppe a l s .us /r ule s

June 13, 2018



# I n th e Co u r t o f

A p p eals o f

G eo r g ia

A1 8 A0 59 4

. ALTAM A HA R I VERKEEPER, INC. v

. RAYONIER

PERFORM ANCE FIBERS, LLC et al

.

E LLI N G T O N , Pres i d i n g J ud g e.

Th i s d i s p u te ari ses fro m a Nat i o n al Po l l u tan t Di sch arg e El i m i nat i o n Sy s t em

(“ NPDES”) p erm i t is s u ed in 2 0 15 b y t he En vi ro n m en t al Pro t ect i o n Di vi s i o n (“ EPD”)

o f t h e Geo rg i a Dep art m en t o f Nat u ral Res o u rces ren ewi n g ap p el l ee Ray o n i er

Perfo rm an ce Fi b ers , LLC’ s (“ Ray o n i er”) au t h ori zat i on t o d i s ch arg e effl u en t i n t o t h e

Al t am ah a Ri v er fro m

i t s p u l p p l an t i n J es up

. Ap pel l an t Al t am ah a Ri v erk eep er, In c.

(“ Ri v erk eep er”) fi l ed i n t h e Offi ce o f St at e Ad m i n i s t rat iv e Heari n g s a p et i t i o n fo r a

h eari n g as s ert i n g t h at i t an d i t s m em b ers h ad b een ad v ers el y affect ed b y t he i s s u an ce

o f th e p erm i t

. Fo l l o wi n g t h e h eari n g , th e ad m i n i s t rat i v e l aw j u d ge (t h e “ ALJ ”)

rev ers ed t h e perm i t

. Ray o n i e r a n d Ri ch ard Du n n, i n h i s cap aci t y as t h e d i rect o r o fEPD, s o u g h t ju di ci al rev i ew o f t h e ALJ ’ s d eci s i o n

. Th e Su p eri o r Co u rt o f W ay n e

Co u n t y rev ers ed t h e ALJ ’ s d eci s i o n an d affi rm ed t h e p erm i t

. Ri v erk e e p e r a p p eal s

fo l l o w i n g t h i s Co u rt ’ s g ran t o f i t s ap p li cat i o n fo r d i scret i o nary ap p eal an d arg u es t h at

t h e s u p eri o r co u rt erred (i ) b y i n t erp ret i n g Ga. Co m

p . R. & Reg s . r. 3 9 1 -3 -6 -.0 3 (5 )

(c) t o p ro h i b i t o nl y “ u n reas o n ab l e” i n t erferen ce wi t h l eg i t i m at e w at er u s es an d (i i ) by

m ak i n g fact u al fi n d in gs ab o u t t h e reas o n ab l en es s o f t h e i n t e r feren ce i ns t ead o f

rem an di n g t h e cas e t o t h e A LJ t o m ak e fact ual fi n d i n g s co n s i s ten t w i t h i t s o rd er. Fo r

reas on s t h a t f

o l l ow, we affi rm i n p art

, v acat e i n p art

, an d rem an d t h e cas e wi th

d i rect i o n

.

Th e Fed eral Cl ean W at er Act p erm i t s i n d i vi d u al s t at es t o en act an d ad m i n i s t er

t h ei r o w n wat er-q u al it y pro g ram s , s u b ject t o cert ai n fed eral m i n i m u m s t an d ard s

. See

3 3 USC § § 1 2 51

, 1 3 1 3; Up p er Ch a t t a h o o ch ee Ri ver keep er

, In c. v. F o rs yt h Co u n t y ,

3 1 8 Ga. Ap p

. 4 9 9

, 5 0 2 (1 ) (7 3 4 SE2 d 2 4 2) (2 0 1 2). Un d er t he Geo rg i a W at er Qu al i t y

Co n t ro l Act

, OCGA § 1 2 -5 -2 0 et s eq

. ( “ WC QA ” ), p ers o n s o p erat i ng a faci l i t y t h at

d i s ch arg es a p o l l u t an t fro m a p o i n t s ou rce i n t o t he wat ers o f t h e St at e m u st o b t ai n an

NPDES p erm i t b efo re an y s u ch d i s ch arg e. O CGA § 12 -5 -3 0 ; Up per Ch a t t a h o o ch ee

Ri ver keep er

, In c. v. Fo r

s yt h Co u n t y , 3 18 Ga. Ap p. at 50 2 (1 ). EPD ad m i n i s t ers t h e

2NPDES p ro g ram wi t h i n t h e St at e. See O CGA § 1 2 -5 -2 3 (b ) (3 ), (c) (1 5 ); O CGA §

1 2 -5 -3 0

.

Th e Geo rg i a Bo ard o f Nat u ral R e s o u rces (t h e “ Bo ard ”) i s res p on s i b l e fo r

i s su i ng reg ul at i o n s g ov e r

ning, a m ong othe r things, w a te r u s e cl as s i fi cat i o n s an d wat er

q u al i t y s t an d ard s. OCGA § 1 2-5 -2 3 (a) (1 ) (C). M an y wat er q u al it y s t an d ard s i m p o s e

n u m eri c l i m i t s fo r m at ters s u ch as ch em ical co n st i tu en t s , b act eri a, d is s o lv ed o x y g en ,

an d p H l ev el s , am o n g o t h ers

. 1 Th e ru l es , h owev er, al s o co n t ai n n o n

- n u m eri cal

“ n arrat i v e s t an d ard s ” th at ad dres s aes t het i c c o n c e r n s. At i ss u e here i s t h e n arrat i v e

s t an d ard es t ab l i sh ed b y Ga. Co m p

. R. & Reg s

. r. 3 9 1 -3 -6 -.0 3 (5 ) (c), wh i ch

, at t h e

rel ev an t t i m e, p ro v i d ed : “ A l l wat ers s h al l b e free fro m m at eri al rel at ed t o m u n i ci p al

,

i n d u s t ri al o r o t h er d i s ch arg es wh i ch p ro d u ce t u rb i d i ty

, co l o r, o d o r o r o t h er

o b ject i on ab l e co n di t i o n s wh ich i n terfere wi t h l eg i t i m at e wat er u s es

. ”

Th e ALJ i n t erp ret ed t h e p h ras e “ in t erfere w i th l eg i t i m at e wat er u s es ” t o m ean

“ an y i n t erferen ce” w i t h s u ch u s es , an d co n cl u d ed t h at s u ch st an d ard ap p li es t o al l

wat erway s an d fo r al l l eg it i m at e u s es , wi t h o ut ex cep t i o n an d wi t h o u t co n s i d erat i o n

o f t h e d es i g n at ed u s e o f t h e w a t erway

. Th e ALJ fu rt her co n cl ud ed t hat

, t o s h o w

1 See, e.g ., G a. Co m

p

. R. & Reg s

. rr. 3 9 1-3 -6 -.0 3 (5 ) (e) (i ), (i i ); 3 9 1 -3 -6 -.0 3 (6 ) (a).

3i n t erferen ce w i t h l eg i t i m at e wat er u s es , th e “ u se o f th e ri v er [m u st be ] a ct u al l y

h i n d ered o r d i s ru p ted

. ” Ap p l y i n g t h at s t an dard

, t h e ALJ co ncl u d ed th at Ray o n i er’ s

effl u en t has t h e reas o n ab l e po t en t i al t o cau s e a vi o l a t i o n o f t h e n arrat i v e wat er

s t an d ard fo r wat er an d co l o r. In p art i cu l ar, t h e ALJ fo u n d t h at t h e leg i ti m at e u s es o f

t h e Al t am ah a, s u ch a s fi s h i n g o r s wi m m in g o r b o at i n g , are l i k el y to b e h i n d ered

d u ri n g l o w fl o w d u e t o aes t h et ic o bject i on s o f l o cal res i d en t s an d v i s it o rs

. 2

On ju d i ci al rev i ew, t h e s u p eri o r co u rt fo u n d t h at t h e ALJ erred i n i n terp ret i n g

t h e n arrat i v e st an d ard

. Fi n d i n g EPD’ s i n t erp ret at i o n o f t h e s t an d ard t o b e reas o n ab l e

an d i n acco rd wi t h reg u l at o ry an d s t at u to ry pu rp o s es , t h e s u p eri o r co u rt h el d t h at t h e

n arrat i v e s t an d ard p ro t ect ed t h e u s e o f wat ers fro m u n reas o n ab l e i n terferen ce, rat h er

t h an an y i n t erferen ce. Th e s up eri o r co u rt fu rt h er f ound tha t R ay o n i er’ s d i s ch arg e d o es

n o t u n reas o n ab l y in t erfere wi t h l eg i t im at e u s es o f t h e ri v er an d s o rev ers ed t h e ALJ ’ s

d eci s i o n an d affi rm ed t h e i s s u an ce o f t h e p erm i t

.

2 M o re s peci fi cal l y , t he ALJ fo u n d t hat “ d u ri ng l o w fl o w co n d i t i o n s, t h e co l o r

o f t h e d i s ch arg e i s s t i l l d i s t i n ct fro m t h e ri v er wat er, creat i n g a p l u m e o f co l o r t h at

t rav el s al o n g t he b an k fo r s o m e d i s t an ce, an d t h at t he u n p l eas an t o do r o f t h e effl u en t
i s l es s d il u t ed an d m ore p ro n o u n ced u n d er s u ch co n d i t i on s .”

41

. Th e Ap p el l an t co n t en d s t h at th e s u p e r i o r co u rt erred i n i n t erp ret i n g Ga.

Co m p

. R. & Reg s

. r. 3 91 -3 -6 -.0 3 (5 ) (c) t o pro h i b i t o n ly “ u n reas o n ab le” in t erferen ce

wi t h l eg i t i m at e wat er u ses

. In rev i ewi n g an ad m i ni s t r a t i v e ag en cy ’ s d eci s i o n , t h e

“ co u rt s h al l n o t s u b s ti t u t e i t s ju d g m en t fo r th at o f t h e ag en cy as t o t h e wei gh t o f t h e

ev i d en c e o n q u es t i o n s of fact .” OCGA § 5 0 -1 3 -1 9 (h ). See OCGA § 1 2 -5 -4 4 (a)

(p ro ceed i n gs fo r ju d i ci al rev iew o f ad m i n i st rat i v e d eci si on s u n d er t h e W CQA s h al l

b e i n acco rd an ce wi t h OCGA § 5 0 -1 3 -1 9 ). Th e s u p eri o r co u rt m ay , h o wev er, rev ers e

o r m od i fy t h e ag en cy

d eci s i o n

i f s u bs t an ti al ri g h t s o f t h e ap p el l an t h a v e b een p reju d i ced b ecau s e th e

ad m i n i s trat iv e fi n d in g s , i n feren ces , co n cl u s i on s , o r deci s io n s are: (1 ) In

v i o l a t i on of co n st i tu ti o n al o r s t at u t o ry p ro v i s i o ns ; (2 ) In ex ces s o f th e

s t at u t o ry au t ho ri t y o f t h e ag en cy ; (3 ) M ad e u p o n u nl awfu l p ro ced u re; (4 ) Affect ed by o t h er erro r o f l aw; (5 ) Cl earl y erro n eo u s in v i ew of th e

rel i ab l e, p ro b at i v e, an d s u b s tan t i al ev i den ce o n t h e wh o l e reco rd ; o r (6 )

Arb i t rary o r cap ri ci o u s o r ch aract eri zed b y ab u s e o f d is cret i o n o r cl earl y

u n warran t ed ex erci se o f d i s cret i o n.

OCGA § 5 0 -1 3 -1 9 (h ).

On ap p eal fro m t h e s up eri o r co u rt ’ s d eci s i o n i n an ad m i n i st rat i v e ap p eal

, t h i s

Co u rt ’ s “ d u t y i s n ot t o rev i e w w h et her t h e reco rd s u p p o rt s t h e s u p eri o r co urt ’ s

d eci s i o n b u t wh et h er t h e reco rd s u pp o rt s t h e fi n al d eci s i o n o f t h e ad m i n i s t rat i v e

5ag en cy .” ( C i t a t i on an d p u n ct uat i o n o m i t t ed .) Qu ig g v. G a

. Pr o

f es s i on a l S ta n d

a r d s

Co mm. , 3 4 4 Ga. Ap p

. 14 2

, 1 4 8 (8 0 9 SE2 d 2 6 7 ) (2 0 1 7 ). In t h i s cas e, t h e ALJ ’ s fi n al

o rd er co n s t i t u ted th e fi n al ag en cy d eci s i o n fo r p urp o s es o f ju di ci al rev i ew. See Ga.

Co m p

. R. & Reg s

. r. 3 9 1 -1 -2 -.0 8

. “ [T] hi s Co u rt co n d u ct s a d e n o vo rev iew of cl ai m ed

erro rs o f law in t h e s up eri o r co u rt ’ s ap p el l at e r e v i ew o f an ALJ ’ s d eci s i o n.

Fu rt h erm o re, t he i n t erp ret at i o n o f a s t a t u t e o r reg u l at i o n i s a q u es ti o n o f l aw an d,

t h u s , i s al so rev i ewed d e n o v o o n ap p eal .” (Ci t at i o n an d p u n ct u at i on o m i t t ed .)

Ba r ro w v. Du n n , 3 4 4 Ga. Ap p

. 7 4 7 , 7 4 9 (8 1 2 SE2 d 6 3) (2 01 8 ).

At i s s u e i s t h e co rrect i n t erp ret at i o n o f t h e n arrat i v e s tan d ard

, part i cu l arl y t h e

p h ras e “ i n t erferes wi th l eg i t i m at e wat er u s es .”

In co n s t ru i n g ag en cy reg ul at i o n s, we em p l o y t h e bas i c ru les o f st at ut o ry

co n s t ru ct io n an d lo ok t o t h e p l a i n l an g u ag e o f t h e reg ul at i o n t o

d et erm i ne it s m ean i ng

. Nev ert h el es s, ev en if wo rd s are ap p aren t l y p l ai n

i n m ean i n g , t h ey m

u s t n ot b e read i n i s o l at io n an d i n s tead

, m u s t b e read

i n t h e co n tex t o f t h e reg u l at i o n as a wh o le. Fu rt h erm ore, we m u st d efer

t o an ag en cy ’ s i n t erp ret at i o n an d en fo rcem en t o f i t s o wn ru l es

.

(Pu n ct u at i on an d fo o tn ot es om i t t ed .) Up p er Ch a tt a h o o c h ee Ri ver keep er

, In c. v.

Fo r syt h Co u n t

y , 3 1 8 Ga. Ap p . at 5 0 2 (1 ).

6W e read t h e t ex t o f t he narrat i v e s tan d ard “ i n i t s m o s t n at u ral an d reas o n ab l e

way , as an o rd i n ary s p eak er o f t h e En g l is h l an gu ag e wo u l d .” ( C i t a t i o n an d

p u n ct u at i o n o m i t t ed .) Ti b b l es v. Tea ch er s Ret i remen t S

ys t e m of G a

. , 2 9 7 Ga. 5 5 7

, 5 5 8

(1 ) (7 7 5 SE2 d 5 2 7 ) (2 0 1 5). “ In t erfere” i s n o t d efi n ed i n th e ru les g o v ern in g wat er u s e

s t an d ard s

. 3 Ho wev er, “ i n t erfere” can be g en eral l y d efi n ed as “ to ch eck ; h am p er;

h i n d er; i n fri n g e; en cro ach ; t res p as s; d i s t urb ; i n terv en e; in t erm ed d l e; i n terp o s e.”

Hu cka b y v. Ch ea t h a m , 27 2 Ga. Ap p

. 74 6

, 7 5 1 (1 ) (6 1 2 SE2 d 8 1 0 ) (2 0 0 5 )

(p u n ct u a t i o n o m i t t ed ; q u o t in g Bl ack ’ s Law D i ct i on ary (5 t h ed

. 1 9 7 9 ), p. 7 3 0 ). As

u s ed in t h e reg u l at i o n , a “ l eg i t i m at e” u se en co m p as s es a b ro ad ran g e o f wat er u s es

.

In part i cu l ar, th e d efi ni t i o n o f “ r eas o nab l e an d neces s ary u s es ” o f wat er i n cl u d e

“ d ri n k i ng wat er s u p p li es , co n s erv at i o n , p ro tect i o n , an d p ro p ag at i on o f fi s h

, s h el l fi s h,

wi l d l i fe an d o t h e r b en efi ci al aq u at i c l ife, ag ri cu l t u ral

, i n d u s tri al

, recreat i o n al

, an d

o t h er l eg it i ma t e u s es .” (Em p h as i s s u p p l i ed .) Ga. Co m p

. R. & Reg s

. r. 3 9 1 -3 -6 -.0 3 (3 )

(j).

3 Al t h o ug h n o t d efi n ed wi t h i n Ru l e 3 9 1 -3 -6 -.0 3

, t h e Bo ard h as d efi n ed

“ i n terferen ce” o r “ i n t erfere” wi t h i n Ru l e 3 91 -3 -6 -.0 8

, a wat er q u al i t y co n t ro l ru l e ad d res s i n g p ret reat m en t o f p erm i t s fo r d i sch arg e o f an y p o l l u t an t i n t o a p u b l i cl y

o wn ed t reat m en t wo rk s , t o co n s t i t u t e a “ di s ch arg e wh ich

. . . in h ib i ts or d i s ru p t s ” a

p u b l i cl y o wn ed t reat m en t wo rk s . Ga. Co m p . R. & Reg s . r. 3 91 -3 -6 -.0 8 (2 ) (j).

7“ Th e co m m o n an d cu s to m ary u sag es o f th e wo rd s are i m p o rt an t

, b u t s o i s t h ei r

co n tex t .” (Ci t at i o n s o m i t t e d .) Ch an v. El l i s , 2 9 6 Ga. 8 3 8

, 8 3 9 (1 ) (7 7 0 SE2 d 8 5 1 )

(2 0 1 5). Acco rd i n gl y , i n co n s tru i n g t h e m ean in g o f n arrat i ve s t an d ard we al s o l o o k to

t h e W CQA an d t h e reg u l at i o n as a wh ol e. T h e po l i cy o f th e St at e, as ex p res s ed i n t h e

W QCA, i s t h at “ t h e wat er res o u rces of t h e s t at e s h a l l b e u t il i zed p ru d en tl y fo r t h e

m ax i m u m b en efi t o f t h e p eo p l e” an d “ to req u i re wh ere n ece s s a r y r eas on ab l e u s ag e

o f t h e wat ers o f th e s tat e an d reas o n ab l e t reat m en t o f s ewag e, i n d us t ri al was t es , an d

o t h er was t es pri or t o th ei r d i s ch arg e i n t o s uch wat ers .” OCGA § 1 2-5 -2 1 (a). In t u rn ,

acco rd i n g t o t he reg ul a t i on s, t h e p u rp o s e o f t h e St at e in es tab l i s h i ng wat er q u al i t y

s t an d ard s i s , am o n g o t h er t hi n g s , “ t o p ro t ect th e p u b l i c h eal t h o r wel fare in

acco rd an ce wi th t h e p u b l i c i n t eres t fo r dri n k i n g wat er s u pp l i es , co n s erv at i o n o f fi s h,

wi l d l i fe an d o t h er b en efi ci al aq uat i c li fe, an d ag ri cu l t u ral

, i n d u st ri al

, r e c r e a t ion al

, an d

o t h er reas o n ab l e an d n eces s ary u s es [.] ” 4

T he r e gula

tions e sta b li s h i n g wat er qu al i ty s t an d ard s i n cl u d e “ g en eral c r ite r ia

, ” 5

wh i ch ap p l y t o al l wat ers , an d “ s p eci fi c cri t eri a,” 6 wh i ch i m p o se s tan d ard s b as ed o n

4 Ga. Co m

p . R. & Reg s. r. 3 91 -3 -6 -.0 3 (2 ) (a).

5 Ga. Co m

p . R. & Reg s. r. 3 91 -3 -6 -.0 3 (5 ).

6 Ga. Co m

p . R. & Reg s. r. 3 91 -3 -6 -.0 3 (6 ).

8wat er u s e cl as s ifi cat i o n , al s o k n o wn as “ d es i gn at ed u s e,” 7 wh i ch u ses i n cl u d e

d ri n k i n g wat er s u p p l i es , recreat i o n , fi s hi n g , wi ld ri v er, s c e n i c ri v er, an d co as t al

fi sh i n g

. 8 At t h e l o cat i o n o f Ray on i er’ s d i s ch arg e, t h e d es i g n at ed u s e o f t h e Al t am ah a

i s “ fi sh i ng ,” wh i ch h as t h e m o st rel ax ed wat er cri t eri a an d pro v id es fo r p ro p ag at i o n

o f aq u at i c l i fe, s eco n d ary co n t act recreat i o n , 9 an d “ an y o th er u s e req u i ri n g wat er o f

a l o wer qu al i ty .” 1 0 Th e n arrat i v e s tan d ard at i s su e i n t h is cas e i s a g en eral cri t eri o n,

an d as s u ch “ i s d eem ed t o b e n eces s ary an d ap p l i cab l e t o al l w a t ers o f th e St at e.” 1 1

Th e s p eci fi c cri t eri a b as ed o n d es i g n at ed u s es are “ i n ad d i t i o n t o t h e g en eral

cri t eri a.” 1 2 T h e n arrat i v e s t an dard d o es n o t co nt ai n a d ro ug h t o r l ow fl o w ex cep t i o n.

In ad d i t i o n t o th e p l ai n l an g u ag e o f t h e narrat i v e s t an d ard an d it s co n t ex t i n t h e

reg u l at i o n as a wh o l e, w e co n si d er EPD’ s i n t erp ret at i o n o f t he s tan d ard

. A “ rev i ewi n g

7 Th e Cl ean W at er Act co n t em p l at es t h at St at es ad op t w at er q u al it y st an d ard s b as ed o n t h e “ des ig n at ed us es ” o f n av i g ab le wat ers as wel l as wat er q u al i t y cri t eri a b as ed o n s uch u s es . 3 3 USC § 1 3 1 3 (c) (2 ) (A).

8 Ga. Co m

p . R. & Reg s. r. 3 91 -3 -6 -.0 3 (4 ).

9 “ Seco n d ary co n t act recreat i o n ” co n s ti t u t es “ i n ci d en t al co nt act wi t h t h e wat er, wad in g , an d o ccas i o n al s wi m m i n g .” Ga. Co m

p . R. & Reg s . r. 3 9 1 -3 -6 -.0 3 (3 ) (k ).

1 0 See Ga. Co m

p . R. & Reg s . ¶. 3 91 -3 -6 -0 3 (6 ) (c) an d 3 9 1 -3 -6 -.0 3 (1 4 ).

1 1 Ga. Co m

p. R. & Reg s . r. 3 9 1 -3 -6 -.0 3 (5 ).

1 2 Ga. Co m

p. R. & Reg s . r. 3 9 1 -3 -6 -.0 3 (6 ).

9co u rt m

u st g i ve d eferen ce t o th e ag en cy ’ s i nt erp ret at io n o f s t at u t es it i s ch arg ed wi th

en fo rci n g o r ad m i n i s t eri n g an d t o t h e ag en cy ’ s o wn ru l es an d reg u l at i o n s.” No r t h ea s t

Ga . Med . Cen t er , In c. v. W

in der HMA, In c. , 3 03 Ga. Ap p. 5 0 , 5 6 (2 ) (b ) (6 9 3 SE2 d

1 1 0 ) (2 0 1 0 ). In co n s t ru i n g an ad m i n i s t rat i v e ru l e, “ t h e u l t i m at e cri teri o n i s t h e

ad m i n is t r a tiv e i n t erp ret at i o n , wh i ch b eco m es o f co n t ro l l i n g wei g h t u nl es s i t i s p l ai n l y

erro neo u s o r i n co n s i st en t wi t h t h e ru l e.” (Ci t at i o n an d p u n ct u at i o n o m i t t ed .) Th e

At l a n t a Jo u r n al & c. v. Ba b u sh

, 2 5 7 Ga. 7 9 0

, 7 9 2 (2 ) (3 64 S E 2 d 5 6 0 ) (1 9 8 8 ). See

No r t hea s t Ga

. M

ed

. Cen t er

., In c. v

. Wi n d e r HMA, In c. , 3 0 3 Ga. Ap p

. at 5 7 (2 )

(acco rd ). Th e ALJ ack no wl ed g ed t h at EPD’ s i n t erp ret at i o n of th e n arrat i v e s t an d ard

was ex p l ai n ed t h ro u g h t es t i m o n y at t h e h eari n g

. Co n s i st en t l y wi t h t h at t es t i m o n y , t h e

ALJ , i n p ert i n en t p art , d es cri b ed EPD’ s i n t erp ret at i o n as fo l lo ws :

[T] h es e [n arrat i v e wat er q u al i t y ] s t an d ard s m u s t b e co n s i dered i n th e

co n t ex t o f t h e part i cu l ar wat er’ s “ des i g nat ed us e.” [T] h e n arrat i v e wat er

q u al it y st an d ard s d o n o t req u i re t h at al l p eo p l e g et t o u se al l s ect i o n s o f

ev ery w at erb od y at al l ti m es

. Rat h er, fo r m u l t i -u s e b o d i es o f wat er, l ik e

t h e Al t am ah a, t h ere m

u s t b e a reas o n ab l e acco m m o d at io n o f al l

l eg i t i m at e u ses , i n c l u di n g i n d u s t ri al d i s ch arg es

. T hi s s ect i on o f th e

Al t am ah a’ s d es i gn at ed u s e i s fi s h i ng , t h e l o wes t d es i g n at i o n i n t erm s o f

wat er q u al i t y, an d th e n arrat i v e s t an dard s h ou l d n o t b e i n terp ret ed t o

co n v ert t he d es i g n at ed u s e t o s o m e h i g h er u s e.

10Th e n arrat i v e s t an d ard ad d res s es a b ro ad ran g e o f aes t h et i c co ncerns, i n cl u d i n g

“ an y o b ject i o n ab l e co n d i t i o n s,” w hic h c a n not “ inte r f e r e ” w ith a

n othe r br oa d c a teg o ry ,

“ l eg i t i m at e wat er u s es .” To “ i n t erfere” wi th a u s e m ay en co m p as s a v ary i n g d eg ree

o f co n du ct

. Th e s co p e of t h e n arrat i v e s t an dard

, ev en wh en co n s id ered i n t h e co n t ex t

o f t h e r eg u l at i o n as a w h ol e, i s u n cl ear. Th e EPD’ s i n terp ret at i o n o f t h e ru l e i s n ot

i n co n s i s t en t wi t h t h e W CQA an d t h e reg ul at ory s ch em e. T h e p o l i cy o f t h e St at e i s

t h at i t s w at er res o urces b e u s ed fo r t h e m ax i m u m b en efi t o f th e p eo p l e. OCGA § 1 2

-

5 -2 1 (a). It i s co n s i s t en t wi t h t h e W CQA an d t h e reg u l at i o n s g o v ern i ng wat er u s e t h at

i n t erferen ce wi t h leg i t i m at e wat er u s es b e as s es s ed b y i n t erferen ce w i t h t h e p u b l i c’ s

u s e o f t h e wat er, an d n o t by referen ce t o an y o n e o r a sm al l g ro u p o f pers o n s wh o s e

o wn aes t h et i c s en si b i li ti es m ig ht h i n d er t h ei r p ers on al u s e o f th e ri v er. In o t h er wo rd s ,

t h e EPD co u l d reas o n ab l y co n cl u d e, as i t d i d

, t h at t h e narra t i v e s t an dard d o es n ot

req u i re t h at “ al l p eo p l e g et t o u s e al l s ect i o n s o f ev ery wat erb o d y at al l t i m es .” It i s

al s o a fu n d am en t al ru l e o f s t at u t o ry co n s t ru ct i o n “ t o av o i d a co n s t ru ct i o n t h at m ak es

s o m e l an g u ag e m ere s u r p l u s a g e.” (Ci t at io n an d p u nct u at i o n om i t t ed .) Lyma n v.

Cel l ch em In t er n a t i o na l, In c. , 3 0 0 G a. 4 75

, 4 7 7 (7 9 6 SE2 d 2 5 5 ) (2 0 1 7 ). Th us , i t was

p ro p er fo r t h e EPD t o i n t erp ret t h e n arrat i v e s t an d ard as n o t i n ten d ed to co n v ert t h e

11d es i g n at ed u s e o f a wat er b o dy t o a m o re p ro t ect ed u s e. Fi n al l y , t h e p lai n l an g u ag e

o f t h e narrat i v e st an d ard d o es n o t s p eci fy t h e d eg ree o f i n t erferen ce wi t h l eg i t i m at e

wat er u s es t h at wo u l d co n s t i t u t e a v i o l at i o n o f t h e ru l e. Th e DCH’ s in t erp ret at i o n o f

t h e ru l e as en co m

pas si n g a reas o n ab l en es s st an d ard i n as s es s i n g a v i o l at i o n , as

o p p o s ed t o t h e ALJ ’ s f

i n d i n g t h at t h e ru l e p recl u d es “ an y ” in t erferen ce, av o i d s

u n reas o nab l y

ab s o l u t e an d t h erefo re p o t en t i al l y ab s u rd ap p l i cat i o n s o f t he ru l e.

Ri v erk eep er as s ert s t hat t h e EPD’ s i n t erp ret at i o n o f th e n a rrat i v e st an d ard i s

n o t h i n g m ore t h an a co n v en i en t l i t i g at i n g p o s i t io n an d s h o ul d n o t be affo rd ed

d eferen ce. In t h e fed eral co n tex t , d eferen ce t o an ag en cy ’ s i n terp ret at i o n i s

u n warran t ed wh en t h ere i s reas o n t o s u s pect t h at t h e a g en cy ’ s

i n t erp ret at i o n do es n o t refl ect t h e ag en cy ’ s fai r an d co n s i dered ju d g m en t

o n th e m at t er in q u es t i o n

. Th i s m i g h t o ccu r w hen t h e ag en cy ’ s

i n t erp ret at i o n c o n fl i ct s wi t h a p ri or i n t erp ret at i o n , o r wh en i t ap p ears

t h at t h e i n t erp ret at i on is n o t h i n g m o re t h an a co n v en i en t l i t i gat i n g

p o s i t i o n , or a p o st h o c rat i o n al i zat io n ad v an ced b y an ag en cy s eek i n g t o

d efen d p as t ag en cy

act io n ag ai n s t at tack

.

(Ci t at i o n an d p u n ct u at i o n o m i t t ed .) Ch r is to p h er v. S mi t h Kl i n e Beech a m Co r

p

. , 5 6 7

U. S. 14 2

, 1 5 5 (II) (A) (1 3 2 SCt 2 1 5 6

, 1 8 3 LE2 d 1 5 3) (2 0 1 2). W h i l e w e fi n d t h i s

reas on i n g p ers u as i v e, Ri v erk eep er d o es n o t s h o w t h at t h e o ffered t es t i m on y was n ot

t h e EPD’ s fai r an d co n s i d ered ju d g m en t

. See Au er v. Ro b b i n s , 5 19 U.S. 4 5 2

, 4 6 2 (III)

12(B) (1 1 7 SCt 9 0 5

, 1 3 7 LE2 d 79 ) (1 9 9 7 ) (ev en t h ou g h ag en cy i n terp ret at i o n cam e in

fo rm o f l eg al b ri ef, t h ere was n o reas o n t o s u s p ect i t di d n ot co n s t i t u t e t h e ag en cy ’ s

fai r an d co n s id ered ju dg m en t ). Ri v erk eep er d o es n ot p oi n t to an y t h i n g i n t h e reco rd

i n d i cat i n g th at EPD h as t ak en an i n co n s i s t en t p o s i t i o n i n t h e p as t

. Th e i n t erp ret at i o n

was ad v an ced d uri n g t h e ad m i n i s t rat i v e p ro ceed in g s , an d n o t aft erward s

. See Ma r t in

v. Occu p at i o n al S

a fet y a n d Hea l t h Revi ew Co mm. , 4 9 9 U.S. 1 4 4

, 1 5 4-1 5 6 (1 1 1 SCt

1 1 7 1

, 1 13 LE2 d 1 1 7) (1 99 1 ) (i n t erp ret at i o n o f reg u l at i o n d u r i n g ad m in i s t rat i v e

ad j u d i c a t i o n was ag en cy act io n , no t a p os t h o c rat i on al i zat i o n o f i t ). Th e Bo ard ’ s

am en d m en t t o t h e n arrat i v e s t an d ard d u ri ng t h e co u rs e o f t h i s ap p eal i s al so co n s i s t en t

wi t h t h e i n t erp ret at i o n o f t h e n arrat i v e s t an d ard o ffered b y EPD d u ri n g t h e h eari n g

. 1 3

W e co n cl u d e, t h erefo re, t h at th e E PD’ s i n terp ret at i o n o f t h e n arrat i v e s t an dard was

en t i t l e d t o d eferen ce. Th e s u p eri o r co u rt di d n o t err, as al l eg ed b y Ri v erk eep er, in

1 3 Du ri n g th e p en d en cy o f t h is ap p eal

, it i s u n d i s p u t ed t h at t h e Bo ard am en d ed

t h e n arrat i v e s t an dard t o pro vi de: “ Al l wat ers s h al l b e f r e e f ro m m at eri al rel at ed to

m u ni ci p al

, i n d u s t ri al or o t h er di s ch arg es wh i ch p ro du ce t urb i d it y , co l or, o d or o r o t h er

o b ject i on ab l e co n d it i on s wh i ch u n reas o n ab l y i n terfere wi t h t h e d es ig n at ed u s e o f t h e

wat er b o d y .” Th e ex p res s p u rp o s e o f t h e am en d m en t was t o “ cl ari fy th e cu rren t
l an g u ag e.” See J

a c ks on v. Del

k

, 2 5 7 Ga. 5 41

, 5 4 3 (3 ) (3 6 1 SE2 d 3 7 0) (1 9 8 7 ) (co n s i d eri n g “ cl ari fi cat i o n ” b y a zo n i n g b o ard o f it s deci s i o n d u ri n g t h e pen d en cy o f

t h e ap p eal ). It ap p ears fro m t h e p art i es ’ su p pl em en t al b ri efi n g t h at t h e am en dm en t to

t h e reg u l at i o n h as b een fo rm al l y ad op t e d b y t h e Bo ard an d n ot h i n g rem ai n s t o b e d o n e at t h e s t at e l ev el , b u t t hat t h e rev i s ed ru l e rem ai n s s u b j ect t o EPA ap p ro v al

.

13co n cl u d in g t h at t he n arrat i v e s t an d ard p ro h ib i t s “ u n reas o n ab l e” i nt erfe r e n c e wi th

l eg i t i m at e wat er u s es

.

2

. Ri v erk eep er al s o co n t en d s t h at t h e s up eri o r co urt erred b y m ak i n g fact u al

fi nd i ng s ab o u t t he reas o nab l en es s o f t h e i n terferen ce, i n s t ead o f rem an d i n g t h e cas e

t o t h e ALJ t o m ak e fi n d i ng s co n s i s ten t wi t h i t s o rd er. In rev ers in g t h e ALJ ’ s d eci s i o n,

t h e s u p eri o r co u rt co ncl u d ed t h at t h e ALJ ’ s “ fi n d i n g s reg ard i n g ex t en s i v e us e o f [t h e

s u b ject ] p o rt i on o f t h e ri v er fo r fi s h i n g an d recreat i o n e s t a b l i s h t h at Ray o n i er’ s

d i s ch arg e do es no t un reas o n ab l y i nt erfere w i t h l eg it i m at e u ses o f t h e ri v er s o as t o

v i o l at e th e n arrat i v e wat er q u al it y s t an d ard .” Acco rd i ng l y , the su p eri or co u rt rev ers ed

t h e ALJ ’ s d eci si o n an d affi rm ed t h e i s s u an ce o f t h e NPDES p erm it

.

W h ere a ju d g m en t is ren d ered u n der an erro n eo u s t heo ry o f l aw, an ap p el l at e

co u rt m u s t g en eral l y rev ers e an d rem an d fo r reco n s i d erat i o n u n d er t h e co rrect t h eo ry

o f l aw. See S

o ut h ea s t er n Al u mi n u m R ecycl in g

, In c. v. Ra

yb ur n , 1 7 2 Ga. Ap p

. 6 4 8,

6 5 0 (2 ) (3 2 4 SE2 d 1 9 4 ) (1 98 4 ) (req u i ri n g t h at cas e b e reco n s id ered b y t h e ALJ ). An d

i n i ts ap p el l at e re v i ew, t h e s u p eri o r co u rt was no t au th o ri zed to “ s ub s t i t u t e i t s

ju d g m en t fo r t h at of t he ag en cy as t o t h e wei g h t o f t h e ev i d en ce o n q u es t io n s o f fact .”

OCGA § 5 0 -1 3 -1 9 (h ). Co m p are, e. g ., B o n u s S t o res , In c. v. Hen s l ey , 3 0 9 Ga. Ap p.

1 2 9

, 1 3 2 (7 1 0 SE2 d 2 0 1 ) (2 0 11 ) (t h e ap p e l l a t e d i v i s io n o f t h e W o rk ers ’

14Co m

p en s at i o n Bo ard wei g h s ev i d en ce h eard b y th e ALJ

, u nl i k e th e s u p eri o r co u rt ).

M u ch of th e ev i den ce, s u ch as th e d u rat i o n an d freq uen cy o f l o w fl o w ev en t s , wo u ld

n e e d t o b e co n si d ered an ew i n as ses s i ng wh et h er t h e i n t erferen ce wi t h l eg i t i m a t e

wat er u ses was u n reas o n ab le, as o p p o s ed to wh et h er th ere was an y i nt erferen ce. W e

can n ot s ay wh at t h e ALJ wo u l d h av e co n cl u d ed had s h e ap p l i ed t h e co rrect s t an d ard

.

See S o u t h ea s t er n Al u mi n u m Recycl i n g

, In c. v. Ra

yb u r n , 1 7 2 Ga. Ap p

. at 6 5 0 (2 ).

Acco rd in g ly

, we v acat e t h e ord er o f t h e s u p eri or co u rt t o th e ex t en t t hat i t affi rm s t h e

i s su an ce o f t h e NPDES p erm i t an d rem an d wi t h d i r e c t i o n th at t h e s up eri o r co u rt in

t u rn rem an d t h e cas e t o t h e ALJ fo r reco n s i d erat i o n i n l i g h t o f t h i s o p i ni o n . See i d

.

Ju d g m e n t a f f i r med in p a r t a n d va ca t ed i n p a r t

, a n d ca s e rema n ded wi th

d i r ect i o n. Ra

y, J., co n cu rs

. Bet hel

, J., co n cu r

s s p eci a l l y i n Di vi s io n 1 a n d d i s s en t s in

Di vi s i o n 2 .*

* T HI S OPI N I ON I S P HYSI CAL PRECEDENT ONLY. COURT OF

APPEALS RULE 3 3 .2 (a ).

15A1 8 A0 59 4

. ALTAM A HA RIVERKEEPER, INC. v

. RAYONIER

PERFORM ANCE FIBERS, LLC., et al

.

B E T H E L , J u d g e, co n cu rri n g s p eci al l y i n p art an d d i s s en t i n g i n p art

.

I co n cu r t hat th e EPD’ s i n t erp ret at i o n o f i t s o wn n arrat i v e s tan d ard 1 was l awfu l

an d en t i t l ed t o d eferen ce i n t h e co n tex t o f t h e Act an d t h e en ti ret y o f t he reg u l at o ry

s t ru ct u re. M o reo v er, I ag ree wi t h t h e s u peri o r co u rt th at t h e A LJ ’ s fi n d i n gs o f fact are

t h o ro u g h an d m o re t h an s u ffi ci en t t o o b v i at e th e n eed fo r rem a n d f o r f u r t h er fact

fi nd i ng

. I, l i k ewi s e, ag ree wi t h t h e s u p eri o r co u rt t h at t h o s e fi n d i n g s o f fact s u p p o rt

1 Of co u rs e, ci ti zen s an d o t h er st ak eh ol d ers wo u ld b en efi t fro m cl ear st at em en t s

t h at refl ect ed th e act u al i n t en t o f t h e reg ul at o r as o p p o sed t o b ro ad as p i r a t i o n a l

s t at em en t s t h at

, t h o u g h ad o p ted as s tan d ard s , are n o t co n si s t en t wi t h t h e reg u l at o r’ s

act u al i n t en t t o e n fo rce. Nev ert h el es s , as ex p l ai n ed by t h e Pres i d i n g Ju d g e, t h e

ag en cy ’ s i n t erp ret at i o n i s en ti t led t o d eferen ce.t h e l eg al co n c l u s i o n t hat t h e i n t erferen ce i n q u es ti o n was n o t u n reas o n ab l e.

Acco rd in g ly

, I co ncu r s p eci al l y w i t h Di v i s i o n 1 an d I res p ect fu l l y d i s s en t fro m

Di v is i o n 2

.

2