Opinion ID: 393673
Heading Depth: 2
Heading Rank: 2

Heading: The Plan of Implementation

Text: 54 As a significant segment of the water quality standards for salinity, an implementation plan was also adopted by each state to supplement the requisite numerical criteria and narrative provisions. 45 EDF's primary challenge in Claim One is related to the alleged inadequacies and ineffectiveness of the states' plan, as approved by EPA. EDF assailed the plan for its erroneous assumptions, its ineffective provisions, and for its alleged focus upon legally insufficient methods of control. The district court examined the administrative record and found the existence of ample evidence supporting EPA's approval of the plan as satisfying the required statutory test to protect the public health or welfare, enhance the quality of water and serve the purposes of this Act. Section 10(c). For the reasons detailed below, we agree and note that there is sufficient record evidence to support the ruling that EPA's plan approval was not arbitrary and capricious. 46 55 EDF first avers that the states' plan was based upon unrealistic assumptions as to streamflow, rates and development in the upper basin, and feasibility of federal funded salinity mitigation projects. EDF contends that the plan overestimates both River streamflow levels and the funding feasibility of federal salinity projects, while simultaneously underestimating development rates in the upper basin. 56 EDF asserts that the plan, in effect, overstates streamflow levels and understates development (new water depletions) with the end result being an underestimation of expected salinity increases. EDF also complains that the plan was expressly reliant upon an annual streamflow of 15 million acre-feet (m.a.f.), while the correct figure actually ranged from 13.5 to 13.9 m.a.f. In addition, EDF states that the plan is at odds with recognized authorities as to upper basin development levels. Contrary to these assertions, the district court correctly found the existence of a rational basis in the record to support the states' streamflow estimates, as well as their projection of upper basin development levels. 57 In effort to meet the Act's requirements, the states formulated the plan to address a range of variable flow levels and development rates within the River basin. The plan itself contains streamflow estimates ranging from 12 to 16 m.a.f., with estimated levels of depletion due to development evaluated for low, moderate, and high degrees of water use. It must be recognized that streamflow estimates may vary among the experts, as may estimates of future levels of depletion. The record evidence indicates that the plan presented enough data to EPA so that their approval cannot be said to be unreasonable. There is also record evidence which demonstrates the existence of a rational basis for EPA to conclude that depletion resulting from development would be low to moderate; with the resultant projected salinity levels being properly maintained under the plan. 58 As mentioned, the sixteen federal salinity control projects play an integral part in the plan. EDF challenges EPA's plan approval due to the states' assumption that the sixteen federal projects would materialize and function to maintain 1972 levels in the lower main stem. EDF maintains that the assumption was grossly speculative in 1976 because Congress had only authorized and funded four projects, feasibility studies on the remaining twelve projects were problematic, and there was some agency opposition to Congressional project authorization. Through the enactment of the CRBSCA, 43 U.S.C. §§ 1592, 1593, Congress expressed a strong federal commitment to aid in the reduction of River salinity levels via authorizing the construction of the sixteen projects, or their equivalents, in 1974. 47 Such an assumption was not grossly speculative in 1976. The states acted reasonably in 1975 by including the projects as key components within the plan, especially given the fact that the sixteen were the major plan components directed at the control and abatement of natural salinity sources. 59 Secondly, EDF attacks EPA's plan approval because the plan, on its face, is allegedly ineffective and will not succeed in controlling salinity. EDF avers that the plan excuses violations of the criteria in advance and will not insure the maintenance of the salinity standards beyond 1990. 48 60 EDF contends that the plan is short range and does not guarantee maintenance of the standards beyond 1990. EPA's approval of a plan with so short a useful life, EDF argues, is arbitrary and capricious. The district court noted that an entire chapter of the plan addressed future possible salinity controls and provided for review and appropriate modification of the plan every three years. The plan was not vague; and it adequately and reasonably projected salinity control measures through 1990. Thereafter, provisions within the plan itself address the incorporation of updates which may become necessary upon the development of future planning and control technology. We also note that no provision within the Clean Water Act requires that initial salinity standards be unalterable. In fact, the Act itself mandates appropriate revision of the water quality standards once every three years. Section 303(c). Hence, EPA's approval here cannot be considered to be arbitrary and capricious. 61 EDF also contests the plan's effectiveness because it allows for advance violations of the standards. Such violations are an actual narrative segment of the salinity standards. The violations are included to provide for temporary increases above the 1972 numeric levels on the condition that control measures to offset such increases are also contained within the plan itself. We find that provision for these temporary violations, as explained in the record, is proper, given the highly variable annual flow of the River, and the fact that the control projects may not come on line as soon as originally contemplated. 62 Third, EDF argues that the plan relied upon insufficient methods of control by ignoring non-structural on-farm approaches and other agricultural methods. EDF contends, in essence, that the plan erroneously excluded on-farm methods which are allegedly more effective than currently employed practices. 49 This allegation is contradicted by the record. The plan contained many non-structural projects. These projects utilize on-farm methods as a means of reducing salinity resulting from irrigation return flows as well as existing irrigation practices. The plan reasonably considers the requisite on-farm measures. 50 63 EDF avers that the plan ignores what EDF believes are the most effective and economic control measures available. Such disregard, EDF argues, has no rational basis in the law or in sound planning. While the record is indicative that on-farm techniques offer significant potential for the control and abatement of salinity, it also reveals that such measures are not always the most plausible or cost-effective controls, and alone would be insufficient to maintain the numeric criteria at 1972 levels. Given our limited scope and standard of review, we cannot say that the propriety of the plan's use of on-farm techniques, as approved by EPA, has been unreasonable or irrational. See Ethyl Corp. v. EPA, supra, 541 F.2d at 34.