Opinion ID: 663703
Heading Depth: 4
Heading Rank: 3

Heading: Protection of All Stream Uses

Text: 36 Appellants next contend that the district court ratified EPA's approval of the state dioxin standards without ensuring protection of all stream uses. Appellants suggest that when EPA adopted the 1.2 ppq standard, it was required to demonstrate that other stream uses were protected. They maintain that EPA ignored record evidence revealing that the 1.2 ppq standard could cause serious, direct, toxic effects to aquatic life and other wildlife that consume fish tainted with dioxin. Appellants thus argue that EPA did not follow the CWA, its regulations, or its own guidelines by asserting that the water quality criteria were intended to address only one of the minimum statutory uses, human health protection. Essentially, appellants claim that states must adopt a single criterion for dioxin that protects against all identifiable effects on human health, aquatic life, and wildlife. We disagree. 37 Section 303(c)(2)(A) of the CWA (33 U.S.C. Sec. 1313(c)(2)(A) (Supp.1993)) requires that new or revised water quality standards consist of designated uses of the navigable waters involved and the water quality criteria for such waters based upon such uses. That section also provides: 38 Such standards shall be such as to protect the public health or welfare, enhance the quality of water and serve the purposes of this chapter. Such standards shall be established taking into consideration their use and value for public water supplies, propagation of fish and wildlife, recreational purposes, and agricultural, industrial, and other purposes, and also taking into consideration their use and value for navigation. 39 Id. 40 Reference to the regulations also is instructive: A water quality standard ... defines the water quality goals of a water body, or portion thereof, by designating the use or uses to be made of the water and by setting criteria necessary to protect the uses. 40 C.F.R. Secs. 130.3, 131.2. The regulations define criteria as elements of State water quality standards, expressed as constituent concentrations, levels, or narrative statements, representing a quality of water that supports a particular use. When criteria are met, water quality will generally protect the designated use. Id. Sec. 131.3(b). Section 131.11(a) further provides that [s]tates must adopt those water quality criteria that protect the designated use. Such criteria must be based on sound scientific rationale and must contain sufficient parameters or constituents to protect the designated use. For waters with multiple use designations, the criteria shall support the most sensitive use. Id. Sec. 131.11(a). 41 As previously indicated, states should develop either numerical criteria based upon CWA guidance (or other scientific methods), or narrative criteria, if numerical criteria cannot be established. Narrative criteria might also be developed to supplement numerical criteria. Id. Sec. 131.11(b). Clearly, the form of a particular state's water criteria may be either numeric or narrative, 15 depending upon the designated use, as the district court correctly recognized. NRDC II, 806 F.Supp. at 1277. 42 In view of the above, we find that use of the term criteria in CWA Sec. 303(c)(2)(A) and the regulations means that states may adopt multiple criteria for the same pollutant. Thus, where multiple uses are designated for a body of water, there may be multiple criteria applicable to it, as long as the criteria support the most sensitive use of that particular body of water. States have exclusive responsibility to designate water uses. See 40 C.F.R. Sec. 131.10. However, in determining these use designations, states must take into account whether the body of water serves as a public water supply, its role in the protection and propagation of fish, shellfish and wildlife, recreation in and on the water, and agricultural, industrial, and other uses, including navigation. Id. 43 EPA avers that its review of the Maryland and Virginia standards was limited exclusively to protection of human health against any potential adverse effects (both cancerous and non-cancerous) caused by dioxin. The TSDs reflect this position. In reviewing the Virginia water quality standard, EPA stated: 44 The Virginia criterion for [dioxin] is designed to protect human health. Accordingly, EPA has limited its review to assessing the adequacy of the numeric criterion for that purpose. Virginia did not submit a criterion for [dioxin] for the protection of aquatic life. Depending on the circumstances, greater protection than is afforded by Virginia's 1.2 ppq criterion may be required for this purpose. In the absence of a numeric criterion for [dioxin] to protect aquatic life, Virginia's narrative criterion must, consistent with 40 C.F.R. Sec. 122.44(d), be interpreted in individual permitting actions to prevent harm to aquatic life. 45 J.A. at 280-81 (footnote omitted). EPA's comments in the Maryland TSD are similar: 46 The Maryland criterion for [dioxin] is designed to protect human health. Accordingly, EPA's review is limited to assessing the adequacy of the numeric criterion for that purpose. In the absence of a numeric criterion for [dioxin] to protect aquatic life, Maryland's narrative criteria must be interpreted in individual permitting actions to prevent harm to aquatic life. See COMAR Sec. 26.10.01.03.B. (5)(b). Depending on the circumstances, greater protection than is afforded by Maryland's 1.2 ppq criterion may be required for this purpose. 47 Id. at 314 (footnote omitted). Thus, EPA duly acknowledged that dioxin may have adverse effects on aquatic life. However, EPA also noted that application of existing, separate narrative criteria protecting such aquatic life and wildlife could require more stringent controls in some cases than would be required through use of the human health criteria alone. 48 EPA conducted an extensive review of the adequacy of the states' criteria to protect human health, aquatic life and wildlife. Appellants have failed to cite any convincing authority showing that states have an obligation under the CWA or its accompanying regulations to adopt a single numeric criterion for dioxin that protects against all identifiable effects to human health, aquatic life, and wildlife. D. Summary 49 We find that EPA's review of the Maryland and Virginia water quality standards was neither arbitrary nor capricious. Each review conducted by EPA was supported by lengthy, highly scientific, technical support documents explaining in detail EPA's rationale in approving the 1.2 ppq standards. EPA has satisfied this court that substantial evidence exists in the administrative record to support its decision, and that it acted rationally and in accordance with the CWA and its regulations. We therefore refuse to upset either EPA's decision to approve Maryland's and Virginia's adoption of the 1.2 ppq standard or the district court decision affirming the same. 50 E. The District Court's Dismissal of the Original and Amended Count One of the Maryland Complaint 51 In original and amended Count One of the Maryland complaint, NRDC challenges EPA's water quality criteria as a whole, alleging that EPA failed to issue and revise complete water quality criteria for dioxin. 1. Original Count One 52 Original Count One of NRDC's complaint alleged that EPA violated a nondiscretionary duty, assigned to it by Sec. 304(a) of the CWA (33 U.S.C. Sec. 1314(a)), 16 to issue water quality criteria for dioxin that reflect the latest scientific information and that address all identifiable effects on health and welfare. 17 The district court found that EPA's duty was discretionary, see NRDC I, 770 F.Supp. at 1107, and dismissed original Count One, ruling that the citizen's suit provision, Sec. 505(a)(2) of the CWA (33 U.S.C. Sec. 1365(a)(2)) (1982 & Supp.1993), did not confer jurisdiction over NRDC's claim. Id. at 1110. 53 On appeal, NRDC maintains that EPA has a mandatory duty to issue complete, numerical water quality criteria for dioxin, and to revise such criteria based on the latest scientific information. The district court conducted a plenary, exhaustive examination as to whether EPA had a mandatory duty to issue or revise numerical water quality criteria for dioxin and concluded that it did not. We agree and therefore affirm dismissal of original Count One for the reasons expressed by the district court in its thorough and well-reasoned opinion, Natural Resources Defense Council v. EPA, 770 F.Supp. 1093 (E.D.Va.1991) (NRDC I ). 2. Amended Count One 54 As part of its ruling in NRDC I, the district court permitted NRDC to amend Count One to challenge EPA's actions solely under the APA. Id. at 1110 n. 14. NRDC's amended complaint asserted such a claim under 5 U.S.C. Sec. 706 of the APA. 18 EPA moved to dismiss amended Count One on grounds that the applicable statute of limitations had run and that NRDC had failed to exhaust its administrative remedies. Although the district court found that the applicable statute of limitations had not expired, the court granted EPA's motion, holding that because EPA was in the process of reviewing its dioxin criteria, it had made a reviewable final administrative decision. NRDC II, 806 F.Supp. at 1278. 55 NRDC claims that the district court's dismissal of amended Count One improperly closed the door to further judicial review of EPA's dioxin criteria. NRDC argues that the district court's analysis of this issue focused only on NRDC's claim that EPA failed to revise its dioxin criteria based on new scientific evidence. In light of this, NRDC contends that the district court erroneously failed to explain how NRDC was barred from challenging EPA's 1984 dioxin criteria document under the APA. Having reviewed relevant provisions of the APA and corresponding case law, we are not persuaded. 56 Section 704 of the APA provides, in pertinent part, that an [a]gency action made reviewable by statute and [a] final agency action for which there is no other adequate remedy in a court is subject to judicial review. A preliminary, procedural, or intermediate agency action or ruling not directly reviewable is subject to review on the review of final agency action. 5 U.S.C. Sec. 704. Thus, the key focus here is whether EPA's actions with respect to its 1984 dioxin criteria document are final such that federal courts may exercise their powers of review under the APA. 57 In FTC v. Standard Oil Co., 449 U.S. 232, 239-40, 101 S.Ct. 488, 492-93, 66 L.Ed.2d 416 (1980), the Supreme Court outlined several factors to consider in determining whether an agency action is final: (1) whether the action is a definitive statement of the agency's position; (2) whether the action had the status of law and immediate compliance with its terms was expected; (3) whether the action had a direct impact on the day-to-day business of plaintiff; and (4) whether pre-enforcement challenge was calculated to speed enforcement and prevent piecemeal litigation. An analysis of these factors reveals that EPA's actions regarding its 1984 criteria document are not final within the meaning of the APA. 58 Considering the first and second factors, EPA's 1984 criteria document is neither a definitive statement of its position nor does it have the status of law, compelling immediate compliance with its terms. Although this document does serve as an important reference manual to states as they develop water quality criteria for dioxin, we note that it does not purport to create or establish rights or responsibilities for any party, nor does it mandate legal action. 59 EPA's interpretation of the role the criteria play in the CWA regulatory process is illustrative: Section 304(a)(1) criteria are not rules and they have no regulatory impact. Rather, these criteria present scientific data and guidance on the environmental effect of pollutants which can be useful to derive regulatory requirements based on the considerations of water quality impacts. 45 Fed.Reg. 79,319 (1980). Also informative is the language contained in the preface to the 1984 criteria document: 60 [Water quality criteria] represent[ ] a non-regulatory, scientific assessment of ecological effects. The criteria presented in this publication are such scientific assessments.... The water quality criteria adopted in the State water quality standards could have the same numerical limits as the criteria developed under section 304. However, in many situations States may want to adjust water quality criteria developed under section 304 to reflect local environmental conditions and human exposure patterns before incorporation into water quality standards. It is not until their adoption as part of the State water quality standards that the criteria become regulatory. 61 1984 Dioxin Criteria Document at iii (J.A. at 1051) (emphasis added). No compulsory language is included in this provision of the 1984 criteria document. It specifically states that these water quality criteria are non-regulatory, and that they become regulatory only when a state adopts them. Until such time, however, a state may or may not choose to follow EPA's water quality criteria, and the preface to the 1984 dioxin criteria document expressly acknowledges this. In view of the above, we conclude that the 1984 dioxin criteria document simply serves as a useful guide to assist the states in developing their own respective water quality standards. See American Paper Inst., Inc. v. EPA, 882 F.2d 287 (7th Cir.1989) (holding that EPA Region's policy statement does not constitute final agency action because it does not compel action). 62 Regarding the third factor, the 1984 criteria does not affect the day-to-day business of NRDC for the reason that any practical effects will occur only when and if state-issued standards are incorporated into enforceable NPDES permit limitations. It would therefore be entirely too speculative to presume that an EPA criteria guidance will have any impact when it may or may not serve as the basis for state adoption and subsequent EPA approval of a state water quality standard. 63 Finally, with respect to the fourth factor, we believe that to review EPA's actions at this stage, when it currently is engaging in a reassessment of its dioxin criteria, would be premature and would foster unnecessary piecemeal litigation. A waste of judicial resources is almost inevitable if we were to allow an exhaustive review of EPA's current water quality criteria, only to have EPA drastically overhaul its existing water criteria with a completely new and different standard. We therefore hold that EPA's action with regard to its water quality criteria for dioxin is not a reviewable final agency action for purposes of the APA. Nothing in the record, briefs, or oral argument leads this court to believe that EPA has not been forthright, or has otherwise proceeded in bad faith, with regard to its reassessment of dioxin criteria. We trust and expect that EPA will expedite its ongoing review of dioxin, as it has so conveyed in its briefs. We will not disturb this highly technical administrative process at this point and instead will allow it an opportunity to run its course. See Hopewell Nursing Home, Inc. v. Heckler, 784 F.2d 554, 557-58 (4th Cir.1986); American Gen. Ins. Co. v. FTC, 496 F.2d 197, 200 (5th Cir.1974). 64 For the foregoing reasons, the judgment of the district court is 65 AFFIRMED.