Opinion ID: 1435578
Heading Depth: 1
Heading Rank: 4

Heading: Antidegradation Policy

Text: In general, an antidegradation policy seeks to maintain and protect the existing uses [2] of the water, N.J.A.C. 7:9-4.5(d)(2), as well as to improve water quality. Cf. New Jersey Builders Ass'n v. Department of Envtl. Protection, 169 N.J. Super. 76, 83, 404 A. 2d 320 (App.Div.) (observing that the water quality standards and permit programs developed pursuant [to the Water Pollution Control Act] are to ensure that water pollution will not worsen), certif. denied, 81 N.J. 402, 408 A. 2d 796 (1979). The Clean Water Act requires each State to adopt a statewide antidegradation policy. 40 C.F.R. § 131.12(a) (1987). The policy must be included in each State's water-quality standards submitted to the EPA for review. 40 C.F.R. § 131.6(d) (1987). [3] Pursuant to the federal mandate, DEP adopted its antidegradation policy, see N.J.A.C 7:9-4.5(d), and enacted a variety of provisions to ensure compliance with that policy. It is self-evident that the purpose of the antidegradation policy is to protect existing water uses and to maintain present water quality. No irreversible changes may be made to existing water quality that would impair or preclude attainment of the designated uses of a waterway. N.J.A.C. 7:9-4.5(d)(3). In addition, before water quality can be diminished for certain waters, DEP must first determine that the lower water quality furthers other societal interests: Where water quality exceeds levels necessary to support the designated uses, including but not limited to, propagation of fish, shellfish, and wildlife and recreation in and on the water, that quality shall be maintained and protected unless the Department finds, after full satisfaction of the intergovernmental coordination and public participation provisions of the Department's continuing planning process as set forth in this subchapter, that allowing lower water quality is necessary to accommodate important economic or societal development in the area in which the waters are located. [ N.J.A.C. 7:9-4.5(d)(5).] The antidegradation policy also classifies New Jersey waters into four categories. N.J.A.C. 7:9-4.5(d)(6). Each category provides different protections from changes to its existing water quality. Ciba-Geigy discharges effluent from its Toms River facility into Category Two waters. See N.J.A.C. 7:9-4.5(d)(6)(iv). In that category, the agency must review appropriate studies to ensure that the water's quality is preserved and that the existing uses are safeguarded: For Category Two waters, water quality characteristics that are generally better than, or equal to, the water quality standards shall be maintained within a range of quality that shall protect the existing/designated uses, as determined by studies acceptable to the Department, relating existing/designated uses to water quality. Where such studies are not available or are inconclusive, water quality shall be protected from changes that might be detrimental to the attainment of the designated uses or maintenance of the existing uses. Water quality characteristics that are generally worse than the water quality criteria shall be improved to meet the water quality criteria. [ Ibid. ] In addition to enacting those antidegradation provisions, DEP also established numerous other requirements that must be satisfied before an NJPDES permit can be issued. N.J.A.C. 7:14A-1.1 to -14.8. Those requirements include various monitoring provisions, technology-based effluent limitations, and water quality standards in addition to or more stringent than promulgated effluent limitations guidelines or standards   . [4] N.J.A.C. 7:14A-3.13(a)(1), (4), (9). Moreover, a renewal permit must contain limitations, standards or conditions which are at least as stringent as the final limitations, standards, or conditions in the previous permit   . N.J.A.C. 7:14A-3.13(a)(12)(i). [5] It is in this regulatory context that we review the Appellate Division decision concerning antidegradation. As indicated earlier, the court found that the 1985 permit did not violate the agency's antidegradation policy. The court based that holding, in part, on a regulatory provision in effect when the permit was issued. The former regulation, N.J.A.C. 7:9-5.12(a)(1)(ii)(1), like its current version, N.J.A.C. 7:9-4.5(d)(5), allows DEP to reduce the quality of certain high-quality waters after the agency finds that the degradation is necessary to accommodate the important economic or social development in the area in which the waters are located. Ibid. DEP, however, did not rely on that regulation to satisfy its antidegradation obligation. Moreover, even if DEP had decided to lower water quality under that provision, it would have been required to make a special finding that the degradation was necessary for economic or social reasons. The agency concedes that it never made such a finding. The issuance of the permit raises a second procedural concern. The quality of the waters into which Ciba-Geigy discharges its effluent, classified as Category Two waters, must be maintained within a range of quality that shall protect the existing/designated uses, as determined by studies acceptable to the Department, relating existing/designated uses to water quality. N.J.A.C. 7:9-4.5(d)(6)(iv) (emphasis added). The record contains no indication that DEP relied on any studies before deciding whether the proposed discharge would maintain water quality within the permitted range.