Opinion ID: 588800
Heading Depth: 2
Heading Rank: 3

Heading: Zero Maximum Contaminant Level Goals

Text: 20 The Act requires the EPA to set [e]ach maximum contaminant level goal ... at the level at which no known or anticipated adverse effects on the health of persons occur and which allows an adequate margin of safety. 42 U.S.C. § 300g-1(b)(4). Consistent with its past practice, see, e.g., NRDC v. EPA, 824 F.2d 1211, 1214-16 (D.C.Cir.1987); 50 Fed.Reg. 46,895 (1985), the EPA here set a goal of zero for each chemical it considered a known or probable human carcinogen (Category I contaminants). 21 The EPA previously adopted the zero goal approach in another rulemaking under this statute. See National Primary Drinking Water Regulations; Volatile Synthetic Organic Chemicals, 50 Fed.Reg. 46,880 (1985). It did so in part based on its reading of the legislative history of the Act, see id. at 46,884 col. 2 (quoting H.R.Rep. No. 1185, 93d Cong., 2d Sess. 20 (1974)), and in part based on a conclusion that, since current science could not ascertain exactly how a carcinogen caused cancer, it was conservatively believed that exposure to any dose could have adverse health effects. Id. On petition for review, this court determined that, in adopting its zero goal approach, the EPA made an expert judgment based on a reasoned determination. NRDC v. EPA, 824 F.2d at 1215. We upheld that judgment. Id. 22 Perhaps in light of the foregoing, petitioners today argue neither that the EPA's use of a zero goal approach is precluded by Congress's clear intent as expressed in the Act, nor that it is per se an impermissible exercise of the agency's discretion under the Act. Rather, they assert that new scientific evidence exists that might make the EPA's approach untenable, and the agency arbitrarily and capriciously failed to consider and address that evidence. Brief for Petitioners at 30-33. 23 The evidence consisted primarily of a three-page letter to the editor, written by Drs. Bruce N. Ames and Lois Swirsky Gold of the University of California at Berkeley, published in SCIENCE magazine. Ames & Gold, Pesticides, Risk, and Applesauce, 244 SCIENCE 755 (May 19, 1989). The only other evidence submitted was the declaration of Dr. Gori. Comment to the EPA, Declaration of Dr. Gio Batta Gori (Aug. 17, 1989), reprinted in J.A. at 320-36. Both admitted that the causes of human cancer were still unknown. 244 SCIENCE at 757; Gori Decl. at 4, reprinted in J.A. at 323. The Ames letter advanced the argument that low doses of carcinogens appear to be ... less hazardous than is generally thought, 244 SCIENCE at 757; Gori pointed out the difficulties inherent in drawing conclusions about humans from studies done on animals. Gori Decl. at 6-10, reprinted in J.A. at 325-29. 24 Neither document, however, reflected the results of any new empirical studies or laboratory experiments. Neither offered a new statistical analysis of existing data. Both simply pointed out certain shortcomings in the methods and data generally relied on by the scientific establishment. (Ames's letter was substantially similar to his 1985 submission to the California Legislature regarding a bill then under consideration. Letter from Dr. Bruce N. Ames to Hon. Art Torres (Nov. 11, 1985), reprinted in J.A. at 352-54.) The new scientific evidence petitioners point to, see Brief for Petitioners at 31, boils down to the opinions of a few scientists who, however qualified, are in their own words at odds with what is generally thought about the subject. 244 SCIENCE at 757; cf. Gori Decl. at 9, reprinted in J.A. at 328. 25 In the context of the EPA's treatment of carcinogens generally, and its rulemakings under this statute in particular, we find the Agency's response to the comments adequate. After noting that it had heard before most of what was now being said, Final Rule, 56 Fed.Reg. at 3,533, the EPA stated that it was sticking with its zero goal policy when current scientific data do not show a safe threshold. Id. at 3,535. Necessarily implicit in that statement, we think, is an Agency conclusion that the Gori declaration and the Ames letter did not require a contrary result. The EPA stated that it would continue to consider whether it is possible to define levels that have little or no meaning in terms of cancer risk, and that if such levels were found it would reconsider its zero goal approach. Id. While in some circumstances an agency must undertake a more detailed re-justification of its prior position, see, e.g., Bechtel v. FCC, 957 F.2d 873 (D.C.Cir.1992), when the agency's decision is as recent (and as recently upheld) as this one, that duty cannot be triggered by the submission of comments consisting of little more than assertions that in the opinions of the commenters the agency got it wrong. Given that neither submission here presented any data, Final Rule, 56 Fed.Reg. at 3,535, we cannot fault the EPA for not paying more attention to them.