Opinion ID: 741847
Heading Depth: 2
Heading Rank: 4

Heading: Nationwide Permit 26 (NWP 26)

Text: 22 Banks argues that even if his lands qualify as jurisdictional, adjacent wetlands, some of his discharge activities were permissible under NWP 26. The CWA provides that the Corps can issue general permits on a state, regional or nationwide basis under certain circumstances. 33 U.S.C. § 1344(e). From 1980 through 1994, the Corps has administered five versions of NWP 26, covering the discharge of material into navigable waters of the United States that are either (1) above the headwaters or (2) are other non-tidal waters that are not part of a surface tributary system to interstate waters or navigable waters. 23 Banks' position is that the Corps expanded the scope of non-tidal waters into which discharges were authorized by NWP 26 in its 1982 rule, but then contracted the scope in its 1991 rule. Banks contends that some of his discharge activity during the period from 1982 to 1992, therefore, was within the scope of the NWP 26 because the waters into which he discharged met the definition at that time of non-tidal waters that are not part of a surface tributary system to interstate waters or navigable waters. The government, however, disputes this contention, arguing that wetlands adjacent to navigable waters--such as Banks' lots--have always been considered included in the term surface tributary system, and that the Corps has consistently construed and enforced this provision. 24 The district court correctly rejected Banks' argument that NWP 26 authorized some of his discharges, because Banks failed to carry his burden of persuasion on this issue. See United States v. Cumberland Farms of Conn., Inc., 826 F.2d 1151, 1157 (1st Cir.1987) (holding party seeking to qualify under nationwide permit had burden of persuading court of permit's applicability); see also Riverside Irrigation District v. Andrews, 758 F.2d 508, 514 (10th Cir.1985). The Corp's interpretation of its own regulations, not Banks' interpretation, is entitled to substantial deference. Lyng v. Payne, 476 U.S. 926, 939, 106 S.Ct. 2333, 2341-42, 90 L.Ed.2d 921 (1986), reh'g denied, 478 U.S. 1031, 107 S.Ct. 11, 92 L.Ed.2d 766 (1986). In Banks' particular case, the Corps consistently construed his acts to be outside the scope of NWP 26; as early as 1983, Banks was specifically told by the Corps that his activities required a permit. In 1984, the Corps denied Banks' application for an after-the-fact permit for his discharge activities. Banks has not met his burden to show that any of his lots fell within the scope of NWP 26's other non-tidal waters that are not part of a surface tributary system to interstate waters or navigable waters between 1982 and 1992. 25 We, therefore, conclude that the statute of limitations does not bar the government's claims for equitable relief in this case, and that the district court's finding that Banks' land constituted jurisdictional, adjacent wetlands was not clearly erroneous. We further hold that Banks has failed to demonstrate that some of his activities were permitted by NWP 26. The judgment of the district court is 26 AFFIRMED.