Opinion ID: 380349
Heading Depth: 1
Heading Rank: 7

Heading: Promulgation of the Substitute Standard

Text: 52 Because EPA's disapproval of the DO standard was proper, it was within the scope of the Administrator's authority to promulgate a substitute standard. The question is whether the EPA was arbitrary or capricious in promulgating the DO criteria. 53 Mississippi wants its waters to support a diversified fish population. See note 2 supra. By weight, about 85% of the Mississippi fish can be classified as course or rough fish, such as catfish, carp, drum, buffalo, and shad. Nevertheless, the waters also include higher oxygen demanding gamefish, such as bass, (large mouth, spotted, white, and striped), white perch, bream, crappie, flounder, redfish, speckled trout, white trout, sheephead, croaker, blue gills, and red ear sunfish. Data cited by EPA in both its disapproval and as support for its standard point very strongly to 5 (mg/l) as the lower limit of dissolved oxygen, if the complex is to maintain a desirable fish faunae under natural river conditions. Record, vol. V, at Exh. 73. Testimony and data of experts based on laboratory and field studies support EPA's position that a 5.0 mg/l concentration is needed to support a balanced and diverse fish population and that 4.0 mg/l is the lowest safe level. In addition, fish are subject to more stress as water temperatures rise, a condition usually occurring during low flow periods. Record, Appendix A, at 18-19. 54 The EPA's DO criteria was not a clear error in judgment. Furthermore, EPA did not arbitrarily promulgate its 5.0 mg/l criteria without considering the Mississippi situation. After reviewing the statements from the public hearings, EPA promulgated a lower standard that allows an instantaneous minimum of 4.0 mg/l. EPA did not act in an arbitrary or capricious manner.
55 The Commission asserts that EPA's failure to promulgate its substitute criteria within ninety days after publishing the proposal precludes it from acting. See 33 U.S.C. § 1313(c)(4) (1976). EPA did miss the deadline. 3 The question is what are the consequences of its tardiness. 56 The FWPCA does not impose any sanctions for missing the deadline. The APA requires a consideration of whether prejudice has resulted. 5 U.S.C. § 706; see E. I. du Pont de Nemours & Co. v. Train, 430 U.S. at 131-32 n. 22, 97 S.Ct. at 976-77 (failure to meet statutory deadlines relating to NPDES permits.) As the district court found, no prejudice is shown on this record. 57 The Commission's arguments that the EPA failed to give proper notice of the 4.0 minimum and that the EPA order is unclear are without merit. EPA promulgated a less stringent standard than that originally proposed, one which was subject to public hearing and comment as part of the review process in 1977. Despite the Commission's failure to raise the clarity issue in the district court, we hold that the order is not too unclear for judicial review.