Opinion ID: 78056
Heading Depth: 1
Heading Rank: 15

Heading: Flawed Methodology

Text: The Municipalities argue that the Final Rule is not supported by the record due to four alleged flaws in the Risk Assessment's methodology: (1) failure to consider the concentration of contaminants already present in the aquifers, (2) failure to employ a quantitative probabilistic risk analysis methodology, (3) failure to consider the results of a then-unpublished University of Miami study of well-disposal practices, and (4) faulty assumptions about contaminant plumes. These criticisms are based on a review of the Risk Assessment performed by two scholars, a geologist, and a public utilities manager. The review, however, fails directly to support these criticisms. As an initial matter, it directly states that the Risk Assessment's general approach and methodology were generally appropriate for the problem addressed. CE1 at 284. As for the four specific criticisms, first, the Risk Assessment did incorporate the limited data available at the time of the study regarding the quality of groundwater prior to construction and operation of injection wells. CE1 at 412-13. The EPA also analyzed current and historic groundwater monitoring for the representative counties  particularly, for example, observing a period of fecal coliform spikes in the mid-nineties which was finally alleviated by well disinfection. CE1 at 415-20. Second, although it is true that the EPA did not perform a quantitative probabilistic risk analysis, even the review, as noted, states that the Risk Assessment's methodology was appropriate for the problem it addressed. CE1 at 284. Also, the law does not require selection of the single best methodology in any case, but only a study based on a consideration of the relevant factors and in the construction of which there has been no clear error of judgment. Citizens to Preserve Overton Park, Inc. v. Volpe, 401 U.S. 402, 416, 91 S.Ct. 814, 824, 28 L.Ed.2d 136 (1971), abrogated on other grounds, Califano v. Sanders, 430 U.S. 99, 97 S.Ct. 980, 51 L.Ed.2d 192 (1977). The EPA concedes that the nature of the available data left it unable to perform a quantitative probabilistic risk analysis of the type suggested in the review, but argues that it performed the most rigorous analysis possible given the available data. According to the Risk Assessment, microbial pathogens in the aquifer will likely not degrade at as great a rate as they would in surface water. CE1 at 456, 599. The uncertainty as to this rate of degradation was coupled with general uncertainty stemming from the variable carbonate geology. Explaining that it is much easier and more efficient to prevent groundwater contamination than to try to decontaminate it later, the EPA addressed these uncertainties by making conservative assumptions regarding rates of degradation and travel of effluent through the subsurface environment. The use of this methodology is a legitimate discretionary decision on the part of the EPA. See Am. Iron & Steel Inst. v. EPA, 115 F.3d 979, 993 (D.C.Cir.1997) (per curiam) ([I]t is within EPA's discretion to decide that in the wake of uncertainty, it would be better to give the values a conservative bent rather than err on the other side.); Reilly, 969 F.2d at 1152. Third, even according to the review, the findings of the Risk Assessment are not inconsistent with those of the Miami study. [17] CE1 at 280, 283. Whether or not this is the case, even though the EPA was obligated to employ the best science, it had no absolute obligation to incorporate the findings of any other particular study because the EPA was conducting an independent risk assessment. See Tex. Office of Pub. Util. Counsel v. FCC, 265 F.3d 313, 328 n. 7 (5th Cir.2001) (An agency need not respond to every study, and only has to address significant comments.) (quotations omitted); Hughes River Watershed Conservancy v. Johnson, 165 F.3d 283, 289 (4th Cir.1999) (agency need not consider every study as long as it addresses specific concerns raised by comments) (citing Roanoke River Basin Ass'n v. Hudson, 940 F.2d 58, 64 (4th Cir.1991) (stating that an agency is required only to address specific concerns and explain why it found them unpersuasive)). Fourth, the Municipalities claim that the Risk Assessment makes flawed assumptions as to conductivity rates in different risk scenarios and the rate of dilution of contaminant plumes. Due to uncertainties resulting from limited availability of data, the EPA again chose the most conservative, protective approach in modeling its assumptions as to dilution and conductivity rates. This is permissible. See Am. Iron & Steel Inst., 115 F.3d at 993. It applied different conductivity rates in light of both known geologic characteristics of subsurface Florida (such as porous and more confining material, and the existence of fractures and fissures) and the geologic uncertainties about exactly what exists where within the aquifers. We conclude that the technical judgment made by the EPA was reasonable. See West Virginia v. EPA, 362 F.3d 861, 866-67 (D.C.Cir. 2004) (deference is due to an agency's modeling of complex phenomena, so long as model assumptions ... have a `rational relationship' to the real world). This is another instance of a technical judgment lying fully within the scope of the EPA's agency discretion. See Reilly, 969 F.2d at 1152.