Opinion ID: 380349
Heading Depth: 2
Heading Rank: 2

Heading: Substantive and Procedural Aspects of the Disapproval

Text: 44 We turn to a consideration of whether the disapproval was arbitrary or capricious. 45 To make this finding the court must consider whether the decision was based on a consideration of the relevant factors and whether there has been a clear error of judgment. . . . Although this inquiry into the facts is to be searching and careful, the ultimate standard of review is a narrow one. The court is not empowered to substitute its judgment for that of the agency. 46 Citizens to Preserve Overton Park v. Volpe, 401 U.S. at 416, 91 S.Ct. at 823-24 (citations omitted). 47 With a position that contains both procedural and substantive elements, the Commission argues that EPA's approval of the 5.0 4.0 7 day Q 10 standard in 1973 estops EPA's disapproval of it now and renders EPA's action unreasonable. This position overlooks the congressional goal of attaining fishable and swimmable waters by 1983. Triennial review of state standards is a means of evolving and upgrading water quality standards. In addition, the Act authorizes EPA to set standards whenever the Administrator determines that a revised standard is necessary to meet the FWPCA's requirements. 33 U.S.C. § 1313(c)(4)(B) (1976). If EPA were bound by its prior approvals, this power would be meaningless. We also note that the prior approval in this case was before the statutory deadline for developing criteria under § 1314 and before the Red Book was published. 48 The Commission asserts that EPA failed to consider all relevant factors by excluding economic considerations in setting the DO criteria. EPA determined that while economic factors are to be considered in designating uses, those factors are irrelevant to the scientific and technical factors to be considered in setting criteria to meet those uses. 44 Fed.Reg. 25223, -24, -26 (April 30, 1979). When criteria cannot be attained because of economic factors, EPA states that the particular water can be designated for a less restrictive use, a process called downgrading. Id. at 25224. The Commission argues that the statute's requirement that use and value be considered in setting standards makes economic factors relevant to both the designation of uses and the setting of criteria. 33 U.S.C. § 1313(c)(2) (1976). Furthermore, it claims that EPA's policies against downgrading make its suggested solution illusory. 49 We note at the outset that EPA states it did examine the economic impact of its criteria and concluded that a significant impact (was) not likely to occur. 44 Fed.Reg. at 25225-26. Nevertheless, we are convinced that EPA's construction is correct. See E. I. du Pont de Nemours & Co. v. Train, 430 U.S. 112, at 134-35, 97 S.Ct. 965, at 978-79, 51 L.Ed.2d 204. Congress itself separated use and criteria and stated that the water quality criteria for such waters (shall be) based on such uses. 33 U.S.C. § 1313(c)(2) (1976). The statute requires EPA to develop criteria reflecting the latest scientific knowledge. Id. § 1314(a)(1) (emphasis added). The interpretation that criteria were based exclusively on scientific data predates the 1972 amendments. Water Quality Criteria vii (1968). Furthermore, when Congress wanted economics and cost to be considered, it explicitly required it. See 33 U.S.C. §§ 1311(b)(2)(A), 1312(b), 1314(b) (1976). 50 EPA policy does permit downgrading when substantial and widespread adverse economic and social impact would otherwise result. 40 C.F.R. § 130.17(c)(3) (1978) (now codified at id. § 35.1550(c)(3) (1979)). See also 43 Fed.Reg. 29588, 29590 (July 10, 1978). General downgrading is not possible in this case, however, because Mississippi has the same standard for all uses. Furthermore, the statute requires that waters be at least fishable and swimmable wherever attainable. 33 U.S.C. § 1251(a)(2). Mississippi's lowest use is fishable water. EPA does allow downgrading for particular stream segments, see 43 Fed.Reg. 43741 (Sept. 27, 1978), and suggested this course to the Commission in its disapproval letter. Record, Appendix C, at 222. 51 The Commission also argues that EPA's disapproval was a clear error of judgment. EPA has determined that most fishable waters require a DO concentration of 5.0 mg/l. Quality Criteria for Water 224 (1976). It determined that the fish species in Mississippi, as throughout the South, would be adversely affected by a 4.0 mg/l average during the stressful low flow periods. Record, Appendix C, at 221-23. EPA cited laboratory and field studies supporting its position. Its disapproval of the state standard was not arbitrary or capricious.