Summaries of Federal Environmental Laws Administered by the Environmental Protection Agency

SUMMARIES OF FEDERAL ENVIRONMENTAL LAWS

ADMINISTERED BY THE ENVIRONMENTAL PROTECTION AGENCY

by the

Environmental Protection Section

of the

Environment And Natural Resources Policy Division

With Contributions By The

Science Policy Research Division

March 1, 1984

TP 450 U.S. B . 2 .

The Congressional Research Service works exclusively for

the Congress, conducting research, analyzing legislation, and

providing information at the request of committees, Members, and their staffs.

The Service makes such research available, without partisan bias, in many forms including studies, reports, compilations, digests, and background briefings. Upon request, CRS

assists committees in analyzing legislative proposals and

issues, and in assessing the possible effects of these proposals

and their alternatives. The Service's senior specialists and

subject analysts are also available for personal consultations

in their respective fields of expertise.

ABSTRACT

These summaries of environmental laws administered by the Environmental

Protection Agency are intended to supplement earlier CRS reports with concise

descriptions of EPA's present authorities and responsibilities. Although

many details or technical aspects are omitted, emphasis has been placed on

conveying the essence of each statute, along with the overall strategy of

pollution control, definitions of key terms, and the status of legislative

authorizations.

CONTENTS

.................................................................... iii

INTRODUCTION ................................................................ 3

CLEAN A I R ACT ............................................................... 5

CLEAN WATER ACT ............................................................. 13

THE OCEAN DUMPING ACT ....................................................... 19

S A F E D R I N K I N G WATER ACT ..................................................... 23

THE RESOURCE CONSERVATION AND RECOVERY ACT .................................. 29

................................................................. 33

FEDERAL I N S E C T I C I D E , F U N G I C I D E . AND RODENTICIDE ACT (FIFRA) ................. 39

T O X I C SUBSTANCES CONTROL ACT ................................................ 45

N O I S E CONTROL ACT O F 1972 ............................................... 51

ENVIRONMENTAL RESEARCH AND DEVELOPMENT ...................................... 55

NATIONAL ENVIRONMENTAL P O L I C Y ACT:

EPA FUNCTIONS UNDER THE ACT ............ 61

ABSTRACT

1

1

~

~

~

~

~

~

~

~

~

1

1

SCHEDULE OF ENVIRONMENTAL STATUTE AUTHORIZATION EXPIRATIONS

( a s of J a n u a r y 1984)

E x p i r a t i o n of

Authorizations

C l e a n A i r Act

-* /

September 30, 1981

Clean Water Act

( a ) Sewage t r e a t m e n t g r a n t s

September 30, 1985

( b ) O t h e r programs

September 30, 1982

Resource C o n s e r v a t i o n and

Recovery Act

September 30, 1982

Superfund C o l l e c t i o n of t a x e s f o r f u n d

September 30, 1985

S a f e D r i n k i n g Water Act

September 30, 1982

Federal Insecticide,

F u n g i c i d e , and R o d e n t i c i d e Act

September 30, 1984

T o x i c S u b s t a n c e s C o n t r o l Act

September 3 0 , 1983

Ocean Dumping

September 30, 1982

h n v i r o n m e n t a l R e s e a r c h and Development

September 30, 1982

*/ House r u l e s r e q u i r e enactment of a n a u t h o r i z a t i o n b e f o r e a n

a p p r o & i a t i o n b i l l can be c o n s i d e r e d , b u t t h i s r e q u i r e m e n t can be waived-and f r e q u e n t l y h a s been. Thus, w h i l e e n v i r o n m e n t a l s t a t u t e a u t h o r i z a t i o n s

have e x p i r e d from t i m e t o t i m e , programs have c o n t i n u e d and have been

funded.

INTRODUCTION

The authorities and responsibilities of the Environmental Protection

Agency derive primarily from about 10 major statutes together with provisions

from several other statutes.

The origin of EPA and the evolution of the major

statutes are described in a CRS report, "Environmental Protection:

An

Historical Review of the Legislation and Programs of the Environmental Protection Agency," March 1, 1983 [Report No. 83-34 ENR].

Such an historical approach has numerous advantages, and it provides

insights into h m Congress has developed and modified pollution control

programs.

But the format of that earlier report resulted in lengthy descrip-

tions of superseded provisions which may obscure the picture of current

authorities and responsibilities. This report is designed to supplement the

earlier one by providing a concise picture of EPA's present authorities and

responsibilities.

This report, then, consists of precis of EPA-administered statutes, with

each chapter intended to be a discrete analysis.

While these summaries present

h

the essence of each statute, they are necessarily incomplete. Many details and

secondary provisions are omitted, and even major components of some statutes

are only sketched in.

The 190-page Clean Air Act, for example, is summarized

in 8 pages.

Moreover, this report describes the statutes without discussing actual

implementation problems that may have occurred.

For example, deadlines

to control pollutant discharges and achieve particular statutory mandates

have often been postponed as a result of delayed standard-setting by EPA.

Nevertheless, every effort has been made to convey the overall strategy

of pollution control, and the major programs authorized by each act.

In short, while this report is not intended to contain the level of

detail necessary for one to evaluate specific regulatory requirements, it does

provide an overview of environmental programs, an introduction to hcw each Act

is structured, definitions of key terms, and reviews of the current status of

each act.

The chapters of this report were prepared in the Environment and Natural

Resources Policy Division (ENR) under the direction of John Blodgett; with

contributions by Maria Grimes, Claudia Copeland, Martin Lee, Donald Feliciano,

Mark Reisch, Steve Hughes and John Blodgett, and vith material contributed by

Migdon Segal of the Science Policy Research Division, and vith editing by

Steve Hughes of ENR; and editorial production by Sharon Nixon, Office of

Senior Specialists.

CLEAN AIR ACT

The Clean Air Act is Congress' response to deteriorating air quality

resulting from the growth of America's industrialization as well as its

dependence on the automobile.

The Act is designed to limit and reverse the

pollution of the ambient air through reductions of individual pollutants

emitted by their sources.

Initial versions of the Act in the early 1960s

limited the Federal role largely to research and development and to assistance

to the States that were still primarily responsible for pollution control

programs. However, as knowledge about air pollution increased and air quality

appeared to worsen, the Federal role was strengthened in a series of amendments.

These amendments culminated in December 1970, when the Clean Air

Act was enacted essentially in its present form (P.L. 91-604).

The newly

created Environmental Protection Agency (EPA) was authorized to carry out the

provisions of the Act.

With the energy crisis of 1973-1974, the Act was amended by the Energy

Supply and Environmental Coordination Act (EsEcA) of 1974 (P.L. 93-319) in an

effort to stimulate increased use of domestic fuels through temporary waivers

of emission control requirements.

Continued energy and economic concerns plus

a number of implementation problems led to the Clean Air Act Amendments of

1977 (P.L. 95-95).

None of these amendments changed the basic structure or

the goals of the Act; neither did they permit any waiver of health-based air

quality standards, though delays in attainment were allwed.

BACKGROUND

Strategically, the Clean Air Act is designed around health-based national

ambient air quality standards.

These are to be met through the application

of control technology that will reduce emissions continuously and result

in improved air quality.

Costs and technological capability are subordinated

to the requirement for protecting health.

Moreover, these requirements are

national, so that no facility should gain a competitive edge by having to meet

less stringent controls in some areas.

The basic structure of the Clean Air Act is contained in the following

provisions :

National Ambient Air Quality Standards (NAAQS) , which set limits

on pollution levels in ambient air;

National Emission Standards to control hazardous air pollutants

(NESHAPS);

State Implementation Plans (SIPS), which contain the pollution

cleanup program of each State;

New Source Performance Standards (NSPS), which impose technologybased control requirements on emissions from new stationary

sources of pollution;

Statutory mobile source controls that restrict emissions from

motor vehicles;

Prevention of Significant Deterioration (PSD), designed to

prevent cleaner air in selected regions from deteriorating to

the maximum (most ~olluted) levels allowed by the NAAQS; and

Limitations on new emissions in non-attainment areas--those where

NAAQS are not being met--by utilizing ceilings or offsets.

CRS - 7

1.

N a t i o n a l Ambient A i r Q u a l i t y S t a n d a r d s ( s e c t i o n 1 0 9 )

The Act r e q u i r e s EPA t o e s t a b l i s h NAAQS f o r a i r p o l l u t a n t s t h a t e n d a n g e r

p u b l i c h e a l t h and w e l f a r e and t h a t a r e e m i t t e d i n t o t h e a i r by numerous

sources.

EPA must s e t two l e v e l s of NAAQS:

"Primary s t a n d a r d s " s e t a t l e v e l s

n e c e s s a r y t o p r o t e c t human h e a l t h ; more s t r i n g e n t " s e c o n d a r y s t a n d a r d s " s e t t o

p r o t e c t w e l f a r e , w h i c h i n c l u d e s a i r p o l l u t i o n " e f f e c t s on s o i l s , w a t e r , c r o p s ,

v e g e t a t i o n , manmade m a t e r i a l s , a n i m a l s , w i l d l i f e , w e a t h e r , v i s i b i l i t y , c l i m a t e ,

damage t o and d e t e r i o r a t i o n of p r o p e r t y , and h a z a r d s t o t r a n s p o r t a t i o n , a s

w e l l a s e f f e c t s on economic v a l u e s and on p e r s o n a l c o m f o r t and v e l l b e i n g . "

EPA h a s promulgated NAAQS f o r s e v e n major p o l l u t a n t s :

s u l f u r oxides

(SOX), suspended p a r t i c u l a t e m a t t e r (TSP), n i t r o g e n o x i d e s ( N O X ) , c a r b o n

monoxide ( c o ) , photochemical o x i d a n t s (measured a s o z o n e ) , h y d r o c a r b o n s (HC),

and l e a d ( ~ b ) . These a r e o f t e n c a l l e d " c r i t e r i a p o l l u t a n t s " b e c a u s e t h e i r

s t a n d a r d s a r e based on " c r i t e r i a documents" p r e p a r e d by EPA.

Except f o r l e a d ,

which was l i s t e d more r e c e n t l y , t h e e n f o r c e m e n t d e a d l i n e f o r a t t a i n i n g t h e

NAAQS f o r t h e c r i t e r i a p o l l u t a n t s was December 3 1 , 1982.

Urban a r e a s w i t h

s e v e r e o x i d a n t and c a r b o n monoxide problems may r e c e i v e a n e x t e n s i o n t o

December 3 1 , 1987, p r o v i d e d t h e y t a k e c e r t a i n e x t r a s t e p s t o c o n t r o l t h e

sources of t h e s e p o l l u t a n t s .

EPA was t o have reviewed t h e i n f o r m a t i o n on w h i c h c u r r e n t NAAQS a r e

b a s e d by t h e end of 1980, and e v e r y 5 y e a r s t h e r e a f t e r ; t h e r e v i e w s a r e n o t

y e t completed, however.

A l s o , EPA h a s s t a t u t o r y mandates t o s t u d y s e v e r a l

u n r e g u l a t e d p o l l u t a n t s f o r p o s s i b l e c o n t r o l , i n c l u d i n g cadmium and p o l y c y c l i c

o r g a n i c m a t t e r (PoM), one of s e v e r a l v o l a t i l e o r g a n i c compounds.

2.

Hazardous A i r P o l l u t a n t s ( S e c t i o n 112)

The 1970 CAA r e q u i r e s EPA t o d e v e l o p a l i s t i n g o f a i r p o l l u t a n t s whose

emissions a r e l i k e l y t o r e s u l t i n an i n c r e a s e i n m o r t a l i t y o r s e r i o u s

i r r e v e r s i b l e i l l n e s s a n d , once l i s t e d , p r o p o s e s t a n d a r d s t o r e g u l a t e such

emissions.

Congress and o t h e r g r o u p s have been concerned a b o u t EPA's slowness

i n implementing t h e s e p r o v i s i o n s .

S i n c e 1970, t h e agency h a s l i s t e d 7

- a s h a z a r d o u s and e s t a b l i s h e d e m i s s i o n s t a n d a r d s f o r t h e f i r s t

substances*/

f o u r of them.

~ e t w e e n1977 and 1982, EPA i d e n t i f i e d a n o t h e r 37 s u b s t a n c e s a s

c a n d i d a t e s f o r t h e l i s t i n g , b u t h a s n o t approved i n c l u s i o n on t h e l i s t n o r

proposed e m i s s i o n s t a n d a r d s f o r any of them.

3.

S t a t e Implementation P l a n s (SIPS) ( S e c t i o n 110)

While t h e Act a u t h o r i z e s t h e F e d e r a l EPA t o s e t NAAQS, i t d e l e g a t e s t o t h e

S t a t e s t h e r e s p o n s i b i l i t y t o e s t a b l i s h t h e p r o c e d u r e s by which t h e NAAQS w i l l

be met and e n f o r c e d .

EPA must approve t h e p l a n s t o e n s u r e t h a t t h e y a r e

a d e q u a t e t o meet t h e s t a t u t o r y r e q u i r e m e n t s .

The United S t a t e s h a s been

d i v i d e d i n t o 247 a i r q u a l i t y c o n t r o l (AQcKs) r e g i o n s , and each S t a t e i s

r e s p o n s i b l e f o r a c h i e v i n g t h e NAAQS i n t h e a i r q u a l i t y r e g i o n s w i t h i n i t s

jurisdiction.

SIPS a r e developed by a s s e s s i n g e m i s s i o n s i n a i r q u a l i t y r e g i o n s and

computing by m a t h e m a t i c a l modeling w h e t h e r t h o s e e m i s s i o n s w i l l r e s u l t i n

a i r q u a l i t y i n v i o l a t i o n of a p p l i c a b l e a i r q u a l i t y s t a n d a r d s ; t o t h e e x t e n t

s t a n d a r d s would b e e x c e e d e d , t h e S t a t e imposes c o n t r o l s on s o u r c e s t o r e d u c e

the excess emissions.

The Act now p r o h i b i t s t h e u s e of t e c h n i q u e s w h i c h d i s -

p e r s e r a t h e r t h a n r e d u c e emissions--such

a s very t a l i stacks--except

s p e c i a l , v e r y l i m i t e d c i r c u m s t a n c e s and on an i n t e r i m b a s i s o n l y .

p r o h i b i t s i n t e r m i t t e n t r a t h e r t h a n c o n t i n u o u s c o n t r o l methods.

in

It a l s o

Proposed new

and m o d i f i e d s o u r c e s must o b t a i n S t a t e c o n s t r u c t i o n p e r m i t s f o r which t h e

a p p l i c a n t shows how t h e a n t i c i p a t e d e m i s s i o n s w i l l n o t exceed a l l o w a b l e 1 i m i t s

*/ Mercury, b e r y l l i u m , a s b e s t o s , v i n y l c h l o r i d e , b e n z e n e , r a d i o n u c l i d e s ,

inorganic arsenic.

.

Follcwing the 1977 Amendments, each State by July 1979 was to incorporate

as to nonattainment areas new requirements and the new deadlines for achieving

NAAQS into its SIP. All States have submitted revised, partial, or complete

plans and many have been approved by EPA.

If EPA finds it cannot approve a

SIP and the attainment deadline is exceeded, then it must impose a construction

ban on new major sources of the pollutant in question.

EPA1s authority to

impose such sanctions has been upheld by the courts, and the agency has imposed

construction bans on 49 States in mid-1979.

EPA has also withheld funds from

3 States temporarily for failure to invoke "reasonable efforts" to comply.

4.

New Source Performance Standarcs (NsPS)

-(Section 111)

These standards are to ensure that new industrial facilities comply

with uniform Federal standards. Applying to certain categories of stationary

sources that are major polluters (for example, pmerplants, steel mills,

smelters), NSPS set maximum emissions for new or extensively modified facilities in these categories, with the emission levels determined by the best

"adequately demonstrated" continuous control technology available, taking

costs into account.

EPA must regularly revise and update NSPS applicable

to designated sources as new technology becomes available, since the goal of

using them is to prevent new pollution problems from developing and to force

the installation of new control technology.

5. Emission Controls for Mobile Sources ( ~ i t l e11)

Since 1965, the CAA has established emission standards for automobiles

and light trucks; most other mobile sources have been regulated subsequently.

These Federal standards preempt State auto emission standards, except for

California, which is permitted to request a waiver annually to allow stricter

standards. EPA conducts a testing and certification program to ensure that

new model vehicles--including imports--meet the standards.

The 1970 A c t r e q u i r e d t h a t e m i s s i o n s of c a r b o n monoxide and h y d r o c a r b o n s

be r e d u c e d by 90% by 1975 and e m i s s i o n s o f n i t r o g e n o x i d e s b e r e d u c e d by 90%

by 1976 from t h e e m i s s i o n s a l l m e d i n 1970.

d e a d l i n e s and s e t i n t e r i m s t a n d a r d s .

The 1974 amendments d e l a y e d t h e

The 1977 Amendments f u r t h e r d e l a y e d t h e

d e a d l i n e s , t o 1982 f o r CO and H C , and t o 1985 f o r NOx; a l s o , t h e e m i s s i o n

r e d u c t i o n f o r NOx was r e d u c e d t o 7 5 % , w i t h t h e 90% r e d u c t i o n s e t a s a r e s e a r c h

goal.

To r e d u c e p o l l u t i o n f u r t h e r , t h e CAA a l s o r e q u i r e s EPA t o c o n t r o l f u e l s

and f u e l a d d i t i v e s which a r e u s e d i n m o b i l e s o u r c e s .

Under t h i s a u t h o r i t y ,

EPA h a s b e e n p h a s i n g o u t t h e u s e o f l e a d as a n o c t a n e - b o o s t e r b e c a u s e o f i t s

h e a l t h h a z a r d s , w h i l e a t t h e same t i m e p r o h i b i t i n g i t s u s e i n c a r s

c a t a l y t i c c o n v e r t e r s , w h i c h a r e "poisoned" by t h e l e a d .

6.

P r e v e n t i o n o f S i g n i f i c a n t D e t e r i o r a t i o n (PSD) ( T i t l e I , P a r t C )

Prevention of S i g n i f i c a n t D e t e r i o r a t i o n i s t h e p o l i c y t h a t e x i s t i n g

l e v e l s o f a i r q u a l i t y h i g h e r t h a n r e q u i r e d by NAAQS s h o u l d b e p r o t e c t e d

against s i g n i f i c a n t degradation.

I t means t h a t s o u r c e s i n " c l e a n a i r " r e g i o n s

do n o t have any " r i g h t "

t o p o l l u t e t h e c l e a n a i r i n c r e m e n t e v e n i f t h e NAAQS

would n o t b e v i o l a t e d .

Such s o u r c e s must i n s t a l l r e q u i r e d e m i s s i o n c o n t r o l

t e c h n o l o g y t h a t may b e s t r i c t e r t h a n t h a t r e q u i r e d by NSPS.

The j u s t i f i c a t i o n s

of t h e p o l i c y a r e t h a t i t p r o t e c t s a i r q u a l i t y , m a i n t a i n s c l e a n a i r i n c r e m e n t s

f o r f u t u r e d e v e l o p m e n t , and p r e v e n t s f i r m s from g a i n i n g a c o m p e t i t i v e e d g e by

II

shopping" f o r " c l e a n a i r " t o p o l l u t e .

p r e t e d by t h e courts--PSD

I m p l i c i t i n t h e 1970 Act--as

inter-

was made e x p l i c i t by t h e 1977 Amendments; and PSD

r e q u i r e m e n t s must b e a p a r t o f a l l S I P S .

A t p r e s e n t , PSD r e q u i r e m e n t s a p p l y

o n l y t o p a r t i c u l a t e s and s u l f u r o x i d e s , b u t w i l l b e e x t e n d e d t o o t h e r p o l l u t a n t s i n a second s e t of r e g u l a t i o n s .

these.

EPA h a s p r o p o s e d b u t n o t y e t f i n a l i z e d

The Act n m r e g u l a t e s PSD by r e q u i r i n g c l e a n a i r a r e a s t o b e d e s i g n a t e d

in t h r e e c l a s s e s w i t h s p e c i f i e d i n c r e m e n t s of p o l l u t i o n a l l o w e d t o be e m i t t e d

i n each.

These i n c r e m e n t s r a n g e from v e r y l i t t l e i n C l a s s I a r e a s - - s t a t u t o r i l y

t h e s e i n c l u d e l a r g e n a t i o n a l p a r k s and w i l d e r n e s s a r e a s - - t h r o u g h

modest

i n c r e a s e s i n C l a s s I1 a r e a s ( n e a r l y a l l o t h e r r e g i o n s ) t o e s s e n t i a l l y t h e l e v e l

o f minimum (NAAQS) s t a n d a r d s i n C l a s s 111 a r e a s (more i n d u s t r i a l i z e d a r e a s ) .

P r o c e d u r e s i n v o l v i n g EPA c o n c u r r e n c e a r e e s t a b l i s h e d f o r r e - c l a s s i f y i n g

other than those s t a t u t o r i l y designated a s Class I.

areas

New and m o d i f i e d s o u r c e s

i n PSD a r e a s must i n s t a l l Best A v a i l a b l e C o n t r o l Technology (BAcT).

As p a r t of t h e PSD r e q u i r e m e n t s , t h e Act p r o v i d e s f o r v i s i b i l i t y

p r o t e c t i o n i n mandatory C l a s s I a r e a s .

EPA must l i s t mandatory F e d e r a l

C l a s s I a r e a s where v i s i b i l i t y i s i m p o r t a n t and i d e n t i f y e m i s s i o n s o u r c e s

which i m p a i r v i s i b i l i t y .

S t a t e s must t h e n i n c l u d e i n S I P S e m i s s i o n l i m i t a -

t i o n s b a s e d on b e s t a v a i l a b l e r e t r o f i t t e c h n o l o g y f o r t h e s e s o u r c e s .

7.

Nonattainment A r e a s ( ~ i t l eI , P a r t D )

Nonattainment a r e a s a r e r e g i o n s w h i c h have f a i l e d t o meet NAAQS f o r one

o r more p o l l u t a n t s .

I n t h e view of some, t h e 1970 Act p r o h i b i t e d t h e con-

s t r u c t i o n o f new f a c i l i t i e s i n n o n a t t a i n m e n t a r e a s a f t e r t h e s t a t u t o r y 1975

d e a d l i n e f o r a c h i e v i n g NAAQS.

Most h e a v i l y i n d u s t r i a l i z e d and d e n s e l y popu-

l a t e d a r e a s o f t h e c o u n t r y f a i l e d t o meet t h e d e a d l i n e , however--many,

f a c t , s t i l l have n o t a c h i e v e d i t .

in

I f i n d u s t r i a l expansion continued t o be

p r o h i b i t e d i n t h e s e r e g i o n s , t h e y w e r e l i k e l y t o s u f f e r economic and s o c i a l

hardships.

S i n c e no s t a t u t o r y p r o v i s i o n s w e r e a v a i l a b l e t o m i t i g a t e t h i s

p r o h i b i t i o n , t h e EPA e s t a b l i s h e d a n " o f f s e t p o l i c y " a s a n i n t e r i m m e a s u r e .

Under t h i s p o l i c y , a p r e c o n s t r u c t i o n review was r e q u i r e d i n n o n a t t a i n m e n t

a r e a s , and new o r m o d i f i e d s o u r c e s would be p e r m i t t e d i f t h e i r e m i s s i o n s would

b e more t h a n o f f s e t by e m i s s i o n r e d u c t i o n s from e x i s t i n g s o u r c e s i n t h e a r e a .

The net total emissions of the new source together with the reduced emissions

of existing sources must contribute to reasonable progress tmard attainment

of NAAQS.

Thus, the policy permitted the opportunity for new construction in

nonattainment areas, while ensuring that progress tmard the achievement of

clean air would continue.

The 1977 CAA Amendments incorporated the "offset" strategy and defined the

conditions for permitting new construction. These conditions include:

a State

permit system for all new or modified sources; offsets that ensure "reasonable

further progress" tmard attainment; installation of equipment to obtain the

Lowest Achievable Emission Rate (LAER) by new and expanded facilities and

reasonably available control technology (RAcT) to retrofit existing plants;

additional mobile source control measures and improved public transportation

in areas which cannot attain oxidant and carbon monoxide standards by 1982.

States which fail to institute such measures, especially mandatory inspection/

maintenance programs for auto emission controls, would face sanctions of a

construction ban, losing CAA grants and certain Federal highway construction

funds, or, at EPA's discretion, sewage treatment construction grants for plants

that would contribute to the nonattainment problem.

In 1983, EPA limited

imposition of sanctions to areas not acting in good faith to comply. The

agency also decided not to ban new construction in nonattainment areas with

fully approved remedial plans.

The 1977 Amendments (section 323) also established the National Commission

on Air Quality to report to Congress on the effectiveness of the programs of

the CAA.

The Commission submitted its final report, "To Breathe Clean Air",

to Congress on March 2, 1981.

Several of this report's recommendations have

been incorporated in various legislation pending before the 98th Congress.

CLEAN WATER ACT

The p r i n c i p a l l a w g o v e r n i n g p o l l u t i o n i n t h e N a t i o n ' s w a t e r w a y s i s t h e

F e d e r a l Water P o l l u t i o n C o n t r o l A c t , o r C l e a n Water A c t .

i n 1948 (P.L.

80-845),

amendments i n 1972 (P.L.

92-500)

Originally enacted

t o t a l l y revised the

A c t , g i v i n g i t i t s c u r r e n t s h a p e and s p e l l i n g o u t a m b i t i o u s programs f o r

w a t e r q u a l i t y improvement new b e i n g p u t i n p l a c e by i n d u s t r i e s and m u n i c i p a l ities.

Congress made c e r t a i n f i n e - t u n i n g amendments i n 1977 (P.L.

a g a i n r e a u t h o r i z e d and r e v i s e d p o r t i o n s o f t h e law i n 1981 (P.L.

95-217)

and

97-117).

OVERVIEW

The Clean Water Act e s t a b l i s h e s a s i t s o b j e c t i v e t h e r e s t o r a t i o n and

m a i n t e n a n c e o f t h e " c h e m i c a l , p h y s i c a l , and b i o l o g i c a l i n t e g r i t y o f t h e

Nation's waters."

'Iko g o a l s a l s o a r e e s t a b l i s h e d :

z e r o d i s c h a r g e of pollu-

t a n t s by 1985 a n d , a s a n i n t e r i m g o a l and where p o s s i b l e , w a t e r q u a l i t y t h a t

i s b o t h " f i s h a b l e " and "swimmable" by mid-1983.

The Act c o u l d b e s a i d t o c o n s i s t of two m a j o r p a r t s , one b e i n g t h e

T i t l e I1 p r o v i s i o n s w h i c h a u t h o r i z e a F e d e r a l g r a n t program t o a s s i s t munic i p a l i t i e s i n c o n s t r u c t i n g sewage t r e a t m e n t p l a n t s .

The o t h e r m a j o r p a r t

i s r e g u l a t o r y r e q u i r e m e n t s , found t h r o u g h o u t t h e A c t , t h a t a p p l y t o i n d u s t r i a l and m u n i c i p a l d i s c h a r g e r s .

The Act h a s been termed a t e c h n o l o g y - f o r c i n g

s t a t u t e b e c a u s e of t h e

r i g o r o u s demands p l a c e d on t h o s e who a r e r e g u l a t e d by i t t o a c h i e v e h i g h e r

and h i g h e r l e v e l s of p o l l u t i o n a b a t e m e n t .

I n d u s t r i e s were g i v e n u n t i l

J u l y 1 , 1 9 7 7 , t o i n s t a l l " b e s t p r a c t i c a b l e c o n t r o l t e c h n o l o g y " (BPT) t o

clean up waste discharges.

Municipal wastewater treatment plants were

required to meet an equivalent goal, termed "secondary treatment," by that

date.

(Municipalities unable to achieve secondary treatment by that date

may apply for case-by-case extensions up to July 1, 1988.)

Cities that

discharge wastes into marine waters are eligible for case-by-case waivers

of the secondary treatment requirement, where sufficient showing can be

made that natural factors provide significant elimination of traditional

forms of pollution.

The Clean Water Act requires greater pollutant cleanup by mid-1984,

generally demanding use by industry of "best available technology" (BAT)

economically achievable.

Time extensions up to mid-1987 are available for

industrial sources utilizing innovative or alternative technology.

No time

extensions are allowed for treatment of toxic pollutants, however.

Failure

to meet statutory deadlines could lead to enforcement action.

Under this Act, Federal jurisdiction is broad, particularly regarding

establishment of national standards or effluent limitations. The Environmental

Protection Agency (EPA) issues regulations containing the BPT and BAT effluent limitations applicable to categories of industrial sources (such as iron

and steel manufacturing, organic chemical manufacturing, petroleum refining,

and others).

Certain responsibilities are delegated to the States, and this

Act, like other environmental laws, embodies a philosophy of Federal-State

partnership in which the national government sets the agenda and standards

for pollution abatement and States carry out day-to-day activities of

implementation and enforcement.

Delegated responsibilities under the Act

include authority for qualified States to issue discharge permits to

industries and municipalities and to certify and administer portions of the

construction grants program.

(As of December 1983, 34 States plus the

V i r g i n I s l a n d s had been d e l e g a t e d t h e p e r m i t program, and 45 S t a t e s p l u s

P u e r t o R i c o had o b t a i n e d a u t h o r i t y t o manage p o r t i o n s o f t h e m u n i c i p a l

c o n s t r u c t i o n g r a n t s programs.)

I n addition, States a r e responsible for establishing water quality

s t a n d a r d s , c o n s i s t i n g o f a d e s i g n a t e d u s e ( r e c r e a t i o n , w a t e r s u p p l y , indust r i a l , o r o t h e r ) , p l u s a numerical o r n a r r a t i v e statement of t h e c o n c e n t r a t i o n s

of v a r i o u s c o n s t i t u e n t s necessary t o support t h e d e s i g n a t e d use.

s t a n d a r d s s e r v e a s t h e backup t o f e d e r a l l y s e t technology-based

These

requirements,

by i n d i c a t i n g where a d d i t i o n a l p o l l u t a n t c o n t r o l s a r e needed t o a c h i e v e t h e

o v e r a l l g o a l s of t h e Act.

Programs i n t h e Clean Water Act a r e p r i m a r i l y d i r e c t e d a t p o i n t s o u r c e

p o l l u t i o n , t h a t i s , w a s t e s d i s c h a r g e d from d i s c r e t e and i d e n t i f i a b l e s o u r c e s ,

such a s p i p e s and o u t f a l l s .

In c o n t r a s t , l i t t l e a t t e n t i o n h a s been given t o

n o n p o i n t s o u r c e p o l l u t i o n ( s t o r m w a t e r r u n o f f from a g r i c u l t u r a l , f o r e s t r y ,

and u r b a n a r e a s ) , d e s p i t e e s t i m a t e s t h a t i t may r e p r e s e n t 50 p e r c e n t of t h e

N a t i o n ' s w a t e r p o l l u t i o n problem.

The 1972 amendments a u t h o r i z e d a g r a n t

program t o e n a b l e S t a t e s and r e g i o n a l a g e n c i e s t o d e v e l o p p l a n s f o r cont r o l l i n g n o n p o i n t s o u r c e s , and a l l r e s p o n s i b i l i t y t o r e g u l a t e t h i s d i v e r s e

t y p e o f p o l l u t i o n problem was g i v e n t o S t a t e s , n o t t h e F e d e r a l Government.

However, EPA p e r f o r m s and s u p p o r t s r e s e a r c h and i s s u e s g u i d a n c e on c o n t r o l

methods.

While t h e Act imposes g r e a t t e c h n o l o g i c a l demands, i t a l s o r e c o g n i z e s

t h e need f o r comprehensive r e s e a r c h on v a t e r q u a l i t y problems.

This i s

p r o v i d e d t h r o u g h o u t t h e s t a t u t e , on t o p i c s i n c l u d i n g p o l l u t i o n i n t h e

Great Lakes, in-place

t o x i c p o l l u t a n t s i n h a r b o r s and n a v i g a b l e w a t e r n a y s ,

and w a t e r p o l l u t i o n r e s u l t i n g from mine d r a i n a g e .

The Act a l s o p r o v i d e s

s u p p o r t f o r t r a i n i n g p e r s o n n e l t o o p e r a t e and m a i n t a i n w a s t e w a t e r t r e a t m e n t

facilities.

11--CONSTRUCTION GRANT? PROGRAM

-TITLE

F e d e r a l law h a s a u t h o r i z e d g r a n t s f o r p l a n n i n g , d e s i g n , and c o n s t r u c t i o n

of m u n i c i p a l sewage t r e a t m e n t f a c i l i t i e s s i n c e 1956 (P.L. 84-660).

g r a n t s program was g r e a t l y expanded i n 1972.

This

S i n c e t h a t time Congress h a s

a u t h o r i z e d $49 b i l l i o n and a p p r o p r i a t e d $38 b i l l i o n f o r g r a n t s t o a i d w a s t e water treatment plant construction.

G r a n t s a r e a l l o c a t e d among t h e S t a t e s

a c c o r d i n g t o a complex s t a t u t o r y formula t h a t combines two f a c t o r s :

State

p o p u l a t i o n and a n e s t i m a t e o f m u n i c i p a l sewage t r e a t m e n t f u n d i n g needs

d e r i v e d from a b i e n n i a l s u r v e y conducted by EPA and t h e S t a t e s .

The most

r e c e n t e s t i m a t e , completed i n 1982, i n d i c a t e s t h a t $118 b i l l i o n i s needed

t o c o n s t r u c t m u n i c i p a l w a s t e w a t e r t r e a t m e n t p l a n t s i n t h e United S t a t e s .

F e d e r a l g r a n t s a r e made f o r t y p e s o f p r o j e c t s ( s u c h a s s e c o n d a r y o r more

s t r i n g e n t t r e a t m e n t and a s s o c i a t e d s e w e r s ) based on a p r i o r i t y l i s t e s t a b l i s h e d by t h e S t a t e s .

From f i s c a l y e a r 1972 t h r o u g h f i s c a l y e a r 1984, g r a n t s

have been a v a i l a b l e f o r up t o 75 p e r c e n t of t o t a l p r o j e c t c o s t s , o r up t o

85 p e r c e n t where i n n o v a t i v e o r a l t e r n a t i v e t e c h n o l o g y i s u s e d , such a s r e c l a i m i n g o r r e c y c l i n g of w a t e r .

Beginning i n f i s c a l y e a r 1985, t h e F e d e r a l s h a r e

of c o s t s f o r new p r o j e c t s w i l l be 55 p e r c e n t .

The f u n d i n g bonus f o r innova-

t i v e o r a l t e r n a t i v e p r o j e c t s w i l l c o n t i n u e , however, a l l o w i n g up t o 75 percent Federal funding.

S t a t e s a r e r e s p o n s i b l e f o r t h e non-Federal

share of

project costs.

Over t i m e , c r i t i c s have argued t h a t t h e c o n s t r u c t i o n g r a n t s program had

become a m a s s i v e p u b l i c works program, r a t h e r t h a n one focused on improving

water quality.

I n p a r t t o c o u n t e r t h i s c h a r g e , Congress amended t h e law i n

1581 t o l i m i t F e d e r a l f u n d i n g t o t y p e s of p r o j e c t s t h a t would meet t h e g o a l s

of the Act.

Thus, b e g i n n i n g i n f i s c a l y,ear 1 9 8 5 , p r o j e c t s s u c h a s c o n s t r u c t i o n

of new c o l l e c t o r s e w e r s o r r e h a b i l i t a t i o n o f e x i s t i n g sewer l i n e s , w h i c h may

not be c l o s e l y r e l a t e d t o water q u a l i t y , w i l l n o t b e g r a n t - e l i g i b l e ,

they p r e v i o u s l y were.

although

(Flowever, Governors have t h e d i s c r e t i o n t o u s e up t o

20 p e r c e n t o f a S t a t e ' s a n n u a l a l l o t m e n t f o r such p r o j e c t s .)

PERMITS, REGULATIONS, AND ENFORCEMENT

To a c h i e v e i t s o b j e c t i v e , t h e Act embodies t h e c o n c e p t t h a t a l l d i s c h a r g e s

i n t o t h e N a t i o n ' s w a t e r s a r e u n l a w f u l , u n l e s s s p e c i f i c a l l y a u t h o r i z e d by a

permit.

Thus, e x i s t i n g and new i n d u s t r i a l and m u n i c i p a l d i s c h a r g e r s must a p p l y

t o EPA ( o r q u a l i f i e d S t a t e s ) f o r p e r m i t s u n d e r t h e A c t ' s N a t i o n a l P o l l u t a n t

D i s c h a r g e E l i m i n a t i o n System (NPDES) program.

An NPDES p e r m i t r e q u i r e s t h e

d i s c h a r g e r ( s o u r c e ) t o a t t a i n technology-based

e f f l u e n t l i m i t s (BPT o r BAT f o r

i n d u s t r y , s e c o n d a r y t r e a t m e n t f o r m u n i c i p a l i t i e s , o r more s t r i n g e n t w a t e r

quality protection).

The p e r m i t a l s o r e q u i r e s t h e s o u r c e t o m a i n t a i n r e c o r d s

and t o c a r r y o u t e f f l u e n t m o n i t o r i n g a c t i v i t i e s .

y e a r p e r i o d s and must b e r e - i s s u e d

Permits a r e issued f o r five-

thereafter.

The NPDES p e r m i t i n c o r p o r a t e s n u m e r i c a l e f f l u e n t l i m i t a t i o n s i s s u e d by

EPA.

The BPT l i m i t a t i o n s f o c u s e d on r e g u l a t i n g d i s c h a r g e s o f s o - c a l l e d

c o n v e n t i o n a l p o l l u t a n t s , s u c h as b a c t e r i a and oxygen-demanding m a t e r i a l s .

The BAT l i m i t a t i o n s emphasize c o n t r o l l i n g t o x i c p o l l u t a n t s - - h e a v y

p e s t i c i d e s , and o r g a n i c c h e m i c a l compounds.

metals,

Under p r o v i s i o n s o f a 1976

c o n s e n t d e c r e e w h i c h Congress r a t i f i e d i n amendments i n 1 9 7 7 , EPA i s s u e s

e f f l u e n t l i m i t a t i o n s f o r 65 named c l a s s e s o r c a t e g o r i e s o f t o x i c p o l l u t a n t s ,

o r " p r i o r i t y p o l l u t a n t s , " a c t u a l l y r e p r e s e n t i n g 129 s p e c i f i c c h e m i c a l

substances.

In addition t o these l i m i t a t i o n s applicable t o categories of

i n d u s t r y , EPA i s s u e s w a t e r q u a l i t y c r i t e r i a f o r t h e p r i o r i t y p o l l u t a n t s .

The c r i t e r i a recommend a m b i e n t , o r o v e r a l l , c o n c e n t r a t i o n l e v e l s f o r t h e

same p o l l u t a n t s and p r o v i d e g u i d a n c e t o S t a t e s f o r e s t a b l i s h i n g w a t e r q u a l i t y

s t a n d a r d s t h a t will a c h i e v e t h e g o a l s o f t h e A c t .

A s e p a r a t e type of permit i s required t o undertake dredging o r f i l l i n g

a c t i v i t i e s i n the Nation's waters.

A u t h o r i z e d by s e c t i o n 404 of t h e A c t , t h i s

p e r m i t program i s a d m i n i s t e r e d by t h e U.S. Army Corps o f E n g i n e e r s s u b j e c t

t o , and u s i n g EPA's e n v i r o n m e n t a l g u i d a n c e .

C e r t a i n t y p e s of a c t i v i t i e s a r e

exempt from p e r m i t r e q u i r e m e n t s , i n c l u d i n g normal f a r m i n g , r a n c h i n g , and

f o r e s t r y p r a c t i c e s ; some c o n s t r u c t i o n and m a i n t e n a n c e ; and a c t i v i t i e s a l r e a d y

r e g u l a t e d by S t a t e s u n d e r o t h e r p r o v i s i o n s o f t h e A c t .

EPA may d e l e g a t e

c e r t a i n s e c t i o n 404 permitting r e s p o n s i b i l i t y t o q u a l i f i e d S t a t e s .

O t h e r r e g u l a t i o n s i s s u e d by EPA under t h e Act i n c l u d e g u i d e l i n e s on

d i s p o s i n g o f sewage s l u d g e and g u i d e l i n e s f o r l i m i t i n g d i s c h a r g e of p o l l u t a n t s

i n t o t h e ocean.

EPA a l s o p r o v i d e s g u i d a n c e on t e c h n o l o g i e s t h a t w i l l a c h i e v e

BPT, BAT, and o t h e r l i m i t a t i o n s .

The NPDES p e r m i t , c o n t a i n i n g e f f l u e n t l i m i t a t i o n s of what may b e

d i s c h a r g e d by a s o u r c e , i s t h e A c t ' s p r i n c i p a l e n f o r c e m e n t t o o l .

EPA may

i s s u e a compliance o r d e r or b r i n g a c i v i l s u i t i n U.S. d i s t r i c t c o u r t a g a i n s t

p e r s o n s who v i o l a t e t h e t e r m s of a n NPDES p e r m i t o r one i s s u e d under s e c t i o n

404.

The p e n a l t y f a r such a v i o l a t i o n i s up t o $10,000 p e r d a y .

p e n a l t y o f up t o $ 2 5 , 0 0 0 p e r d a y o r one-year

c r i m i n a l v i o l a t i o n s of t h e Act--for

A stiffer

imprisonment i s a u t h o r i z e d f o r

w i l l f u l or negligent violations.

I n a d d i t i o n , i n d i v i d u a l s may b r i n g a c i v i l a c t i o n i n U.S. d i s t r i c t

c o u r t a g a i n s t p e r s o n s who v i o l a t e a p r e s c r i b e d e f f l u e n t l i m i t a t i o n .

I n d i v i d u a l s a l s o may b r i n g s u i t a g a i n s t t h e A d m i n i s t r a t o r of EPA f o r f a i l u r e

t o c a r r y o u t a n o n - d i s c r e t i o n a r y d u t y under t h e law.

THE OCEAN DUMPING ACT

INTRODUCTION

The 1 9 7 2 Ocean Dumping A c t , t h e f i r s t two t i t l e s o f t h e Marine p r o t e c t i o n

R e s e a r c h and S a n c t u a r i e s Act ( P . L . 92-532),

h a s two b a s i c a i m s :

i n t e n t i o n a l ocean dumping, and t o a u t h o r i z e r e l a t e d r e s e a r c h .

t o regulate

The t h i r d t i t l e ,

n o t addressed h e r e , a u t h o r i z e s t h e establishment of marine s a n c t u a r i e s .

The A c t ' s b a s i c p r o v i s i o n s h a v e remained v i r t u a l l y unchanged s i n c e 1 9 7 2 ,

b u t some new a u t h o r i t i e s h a v e b e e n a d d e d .

These i n c l u d e ( 1 ) new r e s e a r c h

r e s p o n s i b i l i t i e s f o r EPA; ( 2 ) s p e c i f i c a l l y d i r e c t i n g EPA t o r e d u c e o r p h a s e

o u t t h e d i s p o s a l o f "harmful"

s e w a g e s l u d g e s and i n d u s t r i a l w a s t e s ; and ( 3 )

i n c l u d i n g Long I s l a n d Sound w i t h i n t h e purview o f t h e A c t .

Four F e d e r a l a g e n c i e s h a v e r e s p o n s i b i l i t i e s u n d e r t h e Ocean Dumping

Act:

The E n v i r o n m e n t a l P r o t e c t i o n Agency, Corps o f E n g i n e e r s , N a t i o n a l

O c e a n i c and Atmospheric A d m i n i s t r a t i o n , and C o a s t Guard.

EPA h a s p r i m a r y

a u t h o r i t y f o r r e g u l a t i n g ocean d i s p o s a l of a l l s u b s t a n c e s e x c e p t dredged

s p o i l s , w h i c h a r e u n d e r t h e a u t h o r i t y o f t h e Corps o f E n g i n e e r s .

r e s e a r c h on t h e e f f e c t s of man-induced

Long-range

c h a n g e s t o t h e m a r i n e e n v i r o n m e n t is

c h a r g e d t o t h e N a t i o n a l O c e a n i c and Atmospheric A d m i n i s t r a t i o n , w h i l e EPA i s

a u t h o r i z e d t o c a r r y o u t r e s e a r c h and d e m o n s t r a t i o n a c t i v i t i e s r e l a t e d t o

p h a s i n g o u t sewage s l u d g e and i n d u s t r i a l w a s t e dumping.

Under t h e A c t , t h e

Coast Guard i s c h a r g e d w i t h m a i n t a i n i n g s u r v e i l l a n c e o f o c e a n dumping.

REGULATING OCEAN DUMPING

T i t l e I of t h e Act p r o h i b i t s a l l ocean dumping, e x c e p t t h a t a l l o w e d

by p e r m i t s , i n any ocean w a t e r s under U.S. j u r i s d i c t i o n , by any v e s s e l

r e g i s t e r e d by t h e U.S.,

o r by any v e s s e l s a i l i n g from U.S. p o r t s .

The Act

a b s o l u t e l y b a n s a n y dumping of r a d i o l o g i c a l , c h e m i c a l , o r b i o l o g i c a l w a r f a r e

a g e n t s o r any h i g h - l e v e l

radioactive waste.

P e r m i t s f o r dumping any o t h e r

m a t e r i a l s , e x c e p t d r e d g e s p o i l s , can be i s s u e d by t h e EPA " a f t e r n o t i c e and

opportunity f o r public hearings

...where t h e A d m i n i s t r a t o r d e t e r m i n e s t h a t

such dumping w i l l n o t u n r e a s o n a b l y d e g r a d e o r endanger human h e a l t h , w e l f a r e ,

o r a m e n i t i e s , o r t h e m a r i n e e n v i r o n m e n t , e c o l o g i c a l s y s t e m s , o r economic

potentialities."

The EPA s h a l l d e s i g n a t e s i t e s f o r dumping.

ments (P.L. 95-153/P.L,.

96-225)

F u r t h e r amend-

s p e c i f i c a l l y r e q u i r e d t h a t dumping of m u n i c i p a l

sewage s l u d g e o r i n d u s t r i a l w a s t e s which u n r e a s o n a b l y d e g r a d e t h e environment

be phased o u t by December 1981.

Recent amendments ( P . L .

97-424)

placed a

two-year moratorium on t h e d i s p o s a l of n u c l e a r m a t e r i a l s i n t h e o c e a n .

The Corps o f E n g i n e e r s i s s u e s p e r m i t s f o r dumping dredged m a t e r i a l .

P e r m i t s a r e t o be based on t h e same c r i t e r i a u t i l i z e d by EPA, and t o t h e

e x t e n t p o s s i b l e , EPA-recommended

dumping s i t e s s h a l l be u s e d .

Where t h e

o n l y f e a s i b l e d i s p o s i t i o n o f dredged m a t e r i a l would v i o l a t e t h e dumping

c r i t e r i a , t h e Corps c a n r e q u e s t a n EPA w a i v e r .

The p e r m i t s i s s u e d u n d e r t h e Act s p e c i f y t h e t y p e o f m a t e r i a l t o be

dumped, t h e amount t o be t r a n s p o r t e d f o r dumping, t h e l o c a t i o n of t h e dumping,

t h e l e n g t h o f t i m e f o r which t h e p e r m i t s a r e v a l i d , end s p e c i a l p r o v i s i o n s f o r

surveillance.

The A d m i n i s t r a t o r can r e q u i r e a n a p p l i c a n t f o r a p e r m i t t o

p r o v i d e such i n f o r m a t i o n a s h e may c o n s i d e r n e c e s s a r y t o review and e v a l u a t e

the application.

The Act p r o v i d e s f o r c i v i l p e n a l t i e s o f n o t more t h a n $50,000 f o r e a c h

v i o l a t i o n t o be a s s e s s e d by t h e A d m i n i s t r a t o r , t a k i n g i n t o a c c o u n t such

f a c t o r s a s g r a v i t y o f t h e v i o l a t i o n , p r i o r v i o l a t i o n s , and d e m o n s t r a t i o n s o f

good f a i t h ; no p e n a l t y s h a l l be a s s e s s e d u n t i l a f t e r n o t i c e and o p p o r t u n i t y

f o r a hearing.

I n a d d i t i o n , any p e r s o n who v i o l a t e s a r e q u i r e m e n t o f t i t l e I

o f t h e A c t , r e g u l a t i o n s i s s u e d under i t , o r t h e c o n d i t i o n s o f a n o c e a n

dumping p e r m i t , s h a l l be f i n e d n o t more t h a n $50,000 o r i m p r i s o n e d more t h a n

one y e a r .

The C o a s t Guard i s d i r e c t e d t o c o n d u c t s u r v e i l l a n c e and o t h e r

a p p r o p r i a t e enforcement a c t i v i t y t o prevent unlawful t r a n s p o r t a t i o n of

m a t e r i a l f o r dumping, o r u n l a w f u l dumping.

The Act v o i d s a n y o t h e r r e g u l a t i o n o f ocean dumping.

The C l e a n Water

Act and t h e Ocean Dumping Act o v e r l a p w i t h r e s p e c t t o v e s s e l s d i s c h a r g i n g

i n t o t e r r i t o r i a l s e a s , b u t any q u e s t i o n o f c o n f l i c t i s e s s e n t i a l l y moot

b e c a u s e EPA h a s promulgated a u n i f o r m s e t of s t a n d a r d s ( 4 0 CFR P a r t s 220-229,

38 Fed. Reg. 28610 ( 1 9 7 3 ) .

dumping

S t a t e s a r e p r o h i b i t e d from r e g u l a t i n g o c e a n

.

The Act a l s o r e q u i r e s t h e A d m i n i s t r a t o r , t o t h e e x t e n t p o s s i b l e , t o

a p p l y t h e s t a n d a r d s and c r i t e r i a b i n d i n g upon t h e U.S.

by t h e C o n v e n t i o n

on t h e P r e v e n t i o n o f Marine P o l l u t i o n by Dumping o f , W a s t e s and O t h e r Matter.

T h i s c o n v e n t i o n , s i g n e d i n London by 80 c o u n t r i e s i n November 1972, i n c l u d e d

Annexes p r o h i b i t i n g t h e dumping o f m e r c u r y and cadmium and t h e i r s u b s t a n c e s ,

o r g a n o h a l o g e n s u b s t a n c e s i n c l u d i n g DDT and PCBs, p e r s i s t e n t p l a s t i c s , o i l ,

h i g h l e v e l r a d i o a c t i v e w a s t e s , and c h e m i c a l and b i o l o g i c a l w a r f a r e a g e n t s ;

and r e q u i r i n g s p e c i a l p e r m i t s f o r o t h e r h e a v y m e t a l s , c y a n i d e s and f l u o r i d e s ,

and medium and l o w - l e v e l

radioactive wastes,

c o n v e n t i o n on August 3 , 1973.

The S e n a t e r a t i f i e d t h e

RESEARCH ON OCEAN DUMPING

The second title, as amended, authorizes two types of research:

general research on ocean resources, under the jurisdiction of the National

Oceanic and Atmospheric Administration; and research related to phasing out

ocean disposal activities, concluded by the Environmental Protection Agency.

The Ocean Dumping Act directs the National Oceanic and Atmospheric

Administration to carry out a comprehensive and long-term research program

on the effects not only of ocean dumping, but also pollution, overfishing,

and other man-induced changes of the ecosystem.

Additionally, NOAA is to

assess damages from spills a f petroleum and petroleum products.

The research role of the EPA includes "research, investigations,

experiments, training, demonstrations, surveys, and studies'' to minimize

or end the dumping of sewage sludge and of industrial wastes, and to

investigate alternatives available.

The 1980 amendments also required EPA

to study technological options for removing heavy metals and other organic

materials from New York City sewage.

SAFE D R I N K I N G WATER ACT

T h i s c h a p t e r b r i e f l y d e s c r i b e s t h e F e d e r a l r e g u l a t i o n s of p u b l i c d r i n k i n g

w a t e r s u p p l i e s a s implemented u n d e r t h e S a f e D r i n k i n g Water A c t .

The S a f e D r i n k i n g Water Act ( P . L .

93-523),

e n a c t e d on December 1 6 , 1974,

i s t h e b a s i s f o r p r o t e c t i n g p u b l i c d r i n k i n g w a t e r systems.

The m a j o r p a r t

of t h e Act i s a n amendment t o t h e P u b l i c H e a l t h S e r v i c e A c t , a d d i n g T i t l e X I V ,

S a f e t y of P u b l i c Water Systems.

B a s i c a l l y , t h e Act d i r e c t s t h e A d m i n i s t r a t o r

o f EPA t o p r e s c r i b e r e g u l a t i o n s f o r n a t i o n a l d r i n k i n g w a t e r s t a n d a r d s t o

protect the public h e a l t h , permits S t a t e s t o enforce the requirements, provides

f o r p r o t e c t i o n of underground s o u r c e s o f d r i n k i n g w a t e r , and e s t a b l i s h e s a

s y s t e m f o r emergency a l l o c a t i o n o f c h e m i c a l s n e c e s s a r y f o r w a t e r p u r i f i c a t i o n .

D R I N K I N G WATER STANDARDS

I n p r o m u l g a t i n g d r i n k i n g w a t e r s t a n d a r d s ( s e c t i o n 1 4 1 2 ) , EPA had t o

accomplish t h r e e t a s k s .

F i r s t , t h e A d m i n i s t r a t o r was d i r e c t e d t o i s s u e

n a t i o n a l i n t e r i m primary d r i n k i n g w a t e r r e g u l a t i o n s , which a r e designed t o

p r o t e c t h e a l t h t o t h e e x t e n t f e a s i b l e , t a k i n g technology, treatment techn i q u e s , and c o s t s i n t o c o n s i d e r a t i o n .

The i n t e r i m r e g u l a t i o n s became e f f e c -

t i v e w i t h i n 18 months of t h e i r p r o m u l g a t i o n .

Second, i n t h e meantime, EPA was t o c o n t r a c t w i t h t h e N a t i o n a l Academy

o f S c i e n c e s (NAS) f o r a s t u d y o f t h e maximum c o n t a m i n a n t l e v e l s (MCLS) o f

pollutants necessary t o protect public health.

Based on t h i s r e p o r t ,

e n t i t l e d " D r i n k i n g Water and H e a l t h " (volume 1 was p u b l i s h e d i n 1977; f o u r more

volumes have b e e n i s s u e d s i n c e ) , t h e A d m i n i s t r a t o r proposed r e v i s e d p r i m a r y

d r i n k i n g w a t e r s t a n d a r d s , f o l l c w e d t h u s f a r by f i n a l r e v i s e d s t a n d a r d s ( f o r

22 i n d i v i d u a l contaminants)--each

o f which took e f f e c t 18 months a f t e r t h e i r

promulgation.

T h i r d , t h e A d m i n i s t r a t o r was r e q u i r e d t o i s s u e s e c o n d a r y d r i n k i n g w a t e r

r e g u l a t i o n s , which s p e c i f y t h e maximum c o n t a m i n a n t l e v e l s n e c e s s a r y t o prot e c t p u b l i c w e l f a r e , and d e a l p r i m a r i l y w i t h c o n t a m i n a n t s a f f e c t i n g odor and

appearance o f d r i n k i n g w a t e r .

These s t a n d a r d s a r e n o t f e d e r a l l y e n f o r c e a b l e

and a r e i s s u e d a s g u i d e l i n e s t o t h e S t a t e s .

The p r i m a r y enforcement r e s p o n s i b i l i t y f o r p u b l i c w a t e r r e g u l a t i o n l i e s

w i t h t h e S t a t e s , provided they adopt s t a n d a r d s a s s t r i n g e n t a s t h e n a t i o n a l

s t a n d a r d s , a d o p t a d e q u a t e p r o c e d u r e s f o r e n f o r c e m e n t , m a i n t a i n r e c o r d s , and

a d o p t a p l a n f o r p r o v i d i n g emergency w a t e r s u p p l i e s ( S e c t i o n 1 4 1 3 ) .

Whenever

t h e Administrator f i n d s t h a t a p u b l i c v a t e r system i n a S t a t e t h a t has primary

enforcement a u t h o r i t y does n o t comply w i t h r e g u l a t i o n s , h e must r e q u e s t t h e

S t a t e t o r e p o r t t h e s t e p s being taken t o ensure compliance; i f the S t a t e f a i l s

t o comply w i t h i n 2 months, t h e A d m i n i s t r a t o r i s a u t h o r i z e d t o commence a c i v i l

a c t i o n ( S e c t i o n 1414).

He may conduct p u b l i c h e a r i n g s on ways t o b r i n g t h e

system i n t o compliance w i t h t h e r e g u l a t i o n s , and h e s h a l l i s s u e a p p r o p r i a t e

recommendations t o t h e S t a t e and p u b l i c w a t e r system.

I n S t a t e s t h a t do n o t

have p r i m a r y enforcement a u t h o r i t y b e c a u s e t h e y f a i l t o a d o p t a p p r o p r i a t e

s t a n d a r d s and p r o c e d u r e , t h e A d m i n i s t r a t o r i s a u t h o r i z e d t o a c t a s t h e p r i m a r y

enforcement a u t h o r i t y .

(The v a s t m a j o r i t y o f S t a t e s have primacy a u t h o r i t y ,

a l t h o u g h a March 1982 r e p o r t by t h e G e n e r a l Accounting O f f i c e found t h a t many

of them w e r e n o t complying w i t h t h e d r i n k i n g w a t e r r e g u l a t i o n s . )

The Act p r o v i d e s f o r v a r i a n c e s i f t h e q u a l i t y o f t h e raw w a t e r ~ r e c l u d e s

m e e t i n g t h e s t a n d a r d s d e s p i t e a p p l i c a t i o n of t h e b e s t t e c h n o l o g y ( s e c t i o n

1415).

I t a l s o p r o v i d e s f o r exemptions i f t h e s t a n d a r d s c a n n o t b e met f o r

o t h e r c o m p e l l i n g r e a s o n s ( i n c l u d i n g c o s t s ) and i f t h e s y s t e m was i n o p e r a t i o n

b e f o r e t h e e f f e c t i v e d a t e of t h e treatment requirements ( S e c t i o n 1416).

A

v a r i a n c e o r exemption c a n be i s s u e d o n l y i f i t will n o t r e s u l t i n a n u n r e a s o n able health risk.

I t c a n b e i s s u e d by S t a t e s v i t h p r i m a r y e n f o r c e m e n t respon-

s i b i l i t i e s , o r by t h e EPA f o r S t a t e s w i t h o u t .

I n e i t h e r case, an application

v o u l d have t o s p e l l o u t a p r o c e d u r e and s c h e d u l e f o r b r i n g i n g t h e s y s t e m i n t o

compliance.

UNDERGROUND INJECTION CONTROL

Another p r o v i s i o n o f t h e Act r e q u i r e d t h e A d m i n i s t r a t o r t o p r o m u l g a t e

r e g u l a t i o n s f o r S t a t e underground i n j e c t i o n c o n t r o l programs t o p r o t e c t underground s o u r c e s o f d r i n k i n g w a t e r .

These r e g u l a t i o n s w e r e t o c o n t a i n minimum

r e q u i r e m e n t s f o r t h e underground i n j e c t i o n o f w a s t e s t h a t would n o t p r e s e n t

a h a z a r d t o underground s o u r c e s o f d r i n k i n g w a t e r and t o r e q u i r e t h a t a S t a t e

p r o h i b i t , e f f e c t i v e 3 y e a r s a f t e r e n a c t m e n t , a n y underground i n j e c t i o n t h a t i s

n o t a u t h o r i z e d by a p e r m i t i s s u e d by a S t a t e ( s e c t i o n 1 4 2 1 ) .

HmTever, t h e

r e g u l a t i o n s c a n n o t i n t e r f e r e w i t h t h e underground i n j e c t i o n o f b r i n e from o i l

and g a s p r o d u c t i o n o r s e c o n d a r y o r t e r t i a r y r e c o v e r y o f o i l u n l e s s t h e underground s o u r c e s would be a f f e c t e d by i n j e c t i o n .

W i t h i n 180 d a y s o f e n a c t m e n t ,

t h e A d m i n i s t r a t o r was r e q u i r e d t o p u b l i s h a l i s t of S t a t e s f o r w h i c h a n underground i n j e c t i o n c o n t r o l program may b e n e c e s s a r y t o p r o t e c t d r i n k i n g w a t e r

s u p p l i e s ( s e c t i o n 1422).

Within 270 d a y s o f i s s u a n c e o f t h e r e g u l a t i o n s by

EPA, t h e S t a t e s w e r e t o p r o v i d e e v i d e n c e o f a p r o c e d u r e t o implement a n underground i n j e c t i o n c o n t r o l program.

The A d m i n i s t r a t o r was r e q u i r e d t o a p p r o v e

o r d i s a p p r o v e ( i n w h o l e o r i n p a r t ) t h e S t a t e p l a n s w i t h i n 3 months; i n t h e

case of a p p r o v a l , t h e S t a t e s v i l l ' a s s u m e primary r e s p o n s i b i l i t y f o r enforcement.

I f the Administrator disapproves a S t a t e ' s p l a n s , o r the S t a t e chooses

n o t t o assume program r e s p o n s i b i l i t y , EPA must implement t h e program ( S e c t i o n

1423).

I n areas t h a t o v e r l i e a sole source potable aquifer, the Administrator

may p r o h i b i t new underground i n j e c t i o n w e l l s o r d i s a l la. any F e d e r a l funding

f o r p r o j e c t s t h a t may t h r e a t e n t h e s e a q u i f e r s .

F o r o i l and g a s i n j e c t i o n

o p e r a t i o n s o n l y , S t a t e s a r e d e l e g a t e d primary enforcement a u t h o r i t y (when t h e y

have e x i s t i n g programs f o r c o n t r o l ) w i t h o u t h a v i n g t o meet EPA r e g u l a t i o n s

(Section 1425).

The A d m i n i s t r a t o r h a s emergency power t o i s s u e o r d e r s and commence c i v i l

a c t i o n s i f a contaminant l i k e l y t o e n t e r a p u b l i c d r i n k i n g v a t e r supply system

p o s e s a s u b s t a n t i a l t h r e a t t o p u b l i c h e a l t h and S t a t e o r l o c a l o f f i c i a l s have

n o t taken adequate a c t i o n ( S e c t i o n 1431).

I f a chemical necessary f o r v a t e r treatment i s not reasonably a v a i l a b l e ,

t h e A d m i n i s t r a t o r can i s s u e a " c e r t i f i c a t i o n of n e e d , " i n which c a s e t h e

P r e s i d e n t can o r d e r a n a l l o c a t i o n of t h e c h e m i c a l t o t h o s e n e e d i n g i t

(Section 1441).

The A d m i n i s t r a t o r i s p r o v i d e d a u t h o r i t y t o c o n d u c t r e s e a r c h , s t u d i e s , and

d e m o n s t r a t i o n s r e l a t i n g t o t h e c a u s e s , t r e a t m e n t , c o n t r o l , and p r e v e n t i o n of

d i s e a s e s r e l a t i n g t o t h e contamination of w a t e r ( S e c t i o n 1442).

Also, he is

d i r e c t e d t o p r o v i d e t e c h n i c a l a s s i s t a n c e t o t h e S t a t e s and m u n i c i p a l i t i e s i n

e s t a b l i s h i n g and a d m i n i s t e r i n g t h e i r p u b l i c w a t e r s y s t e m r e g u l a t o r y

responsibilities.

The A d m i n i s t r a t o r can make g r a n t s ( 7 5 p e r c e n t of e s t i m a t e d c o s t s ) t o

S t a t e s t o c a r r y o u t p u b l i c v a t e r s y s t e m s u p e r v i s i o n programs, p r o v i d e d t h e

S t a t e w i l l have e s t a b l i s h e d a s u p e r v i s i o n program and w i l l have assumed p r i m a r y

enforcement a u t h o r i t y w i t h i n a year of t h e g r a n t ( s e c t i o n 1443).

And he can

make g r a n t s t o c a r r y o u t underground v a t e r r e s o u r c e p r o t e c t i o n programs i f t h e

S t a t e w i l l h a v e e s t a b l i s h e d an underground s o u r c e p r o t e c t i o n s y s t e m and assumed

primary e n f o r c e m e n t a u t h o r i t y w i t h i n 2 y e a r s o f t h e g r a n t .

The A d m i n i s t r a t o r may a l s o make g r a n t s t o d e v e l o p and d e m o n s t r a t e new

t e c h n o l o g i e s f o r p r o v i d i n g s a f e d r i n k i n g w a t e r and t o i n v e s t i g a t e h e a l t h

i m p l i c a t i o n s i n v o l v e d i n t h e r e c l a m a t i o n and r e u s e o f w a s t e w a t e r s ( s e c t i o n

1444).

I n a d d i t i o n , under c e r t a i n c o n d i t i o n s , t h e A d m i n i s t r a t o r i s r e q u i r e d

t o g u a r a n t e e l o a n s by p r i v a t e l e n d e r s t o s m a l l ~ u b l i cw a t e r s u p p l i e r s t o

e n a b l e t h e s y s t e m s t o meet n a t i o n a l p r i m a r y d r i n k i n g w a t e r s t a n d a r d s .

A l s o , s u p p l i e r s o f w a t e r who may b e s u b j e c t t o r e g u l a t i o n s u n d e r t h e Act

a r e r e q u i r e d t o e s t a b l i s h and m a i n t a i n r e c o r d s , m o n i t o r , and p r o v i d e a n y i n f o r mation t h a t the Administrator r e q u i r e s t o c a r r y o u t t h e requirements o f t h e

Act ( S e c t i o n 1 4 4 5 ) .

The A d m i n i s t r a t o r may a l s o e n t e r and i n s p e c t t h e

p r o p e r t y o f w a t e r s u p p l i e r s t o e n a b l e him t o c a r r y o u t t h e p u r p o s e s o f t h e

Act.

F a i l u r e t o comply w i t h t h e s e p r o v i s i o n s may r e s u l t i n c r i m i n a l

penalties.

The Act e s t a b l i s h e d a N a t i o n a l D r i n k i n g Water Water A d v i s o r y C o u n c i l ,

composed of 15 members, t o a d v i s e , c o n s u l t , and make recommendations t o t h e

A d m i n i s t r a t o r on a c t i v i t i e s and p o l i c i e s d e r i v e d from t h e Act ( S e c t i o n 1 4 4 6 ) .

Any F e d e r a l agency h a v i n g j u r i s d i c t i o n o v e r f e d e r a l l y owned and m a i n t a i n e d

p u b l i c w a t e r s y s t e m s must comply w i t h a l l n a t i o n a l p r i m a r y d r i n k i n g w a t e r

r e g u l a t i o n s a s w e l l a s a n y underground c o n t r o l program ( S e c t i o n 1 4 4 7 ) .

The Act

provides f o r w a i v e r s i n t h e i n t e r e s t of n a t i o n a l s e c u r i t y .

P r o c e d u r e s f o r j u d i c i a l r e v i e w a r e s p e l l e d o u t ( s e c t i o n 14481, and

p r o v i s i o n f o r c i t i z e n s ' c i v i l a c t i o n s i s made ( S e c t i o n 1 4 4 9 ) .

Citizen s u i t s

may b e b r o u g h t a g a i n s t any p e r s o n o r agency a l l e g e d l y i n v i o l a t i o n o f p r o v i s i o n s of t h e A c t , o r a g a i n s t t h e A d m i n i s t r a t o r f o r a l l e g e d f a i l u r e t o p e r f o r m

any a c t i o n o r d u t y which i s n o t d i s c r e t i o n a r y .

A s u r v e y of r u r a l d r i n k i n g w a t e r s u p p l i e s was mandated ( u n d e r S e c t i o n 3

o f t h e P u b l i c H e a l t h S e r v i c e A c t ) t o b e c o n t r a c t e d by t h e A d m i n i s t r a t o r t o

study the quantity, quality, and availability of rural drinking water supplies

and to prepare a report within 2 years of enactment of the Act.

Finally, the Act includes a provision amending the Food, Drug, and

Cosmetic Act, authorizing the Secretary of Health and Human Services (HHS) to

regulate bottled drinking water,

The Secretary is to consult with the

Administrator of EPA in drafting the regulations.

The Safe Drinking Water Act has been amended three times since the

original P.L.

93-523:

1979 by P.L.

96-63;

(1) in November 1977 by P.L. 95-190;

and ( 3 ) in December 1980 by P.L.

96-502.

( 2 ) in September

THE RESOURCE CONSERVATION AND KECOVERY ACT

F e d e r a l s o l i d w a s t e l a w h a s gone t h r o u g h t h r e e m a j o r p h a s e s .

The S o l i d

Waste D i s p o s a l A c t , p a s s e d i n 1965 ( ~ i t l e11 o f t h e C l e a n A i r Act o f 1965,

P.L.

89-272),

f o c u s e d p r i m a r i l y on d i s p o s a l .

It a u t h o r i z e d r e s e a r c h , demon-

s t r a t i o n s and t r a i n i n g , and p r o v i d e d f o r s h a r i n g w i t h t h e S t a t e s t h e c o s t s of

making s u r v e y s of w a s t e d i s p o s a l p r a c t i c e s and p r o b l e m s , and d e v e l o p i n g p l a n s .

The Resource Recovery Act o f 1970 (P.L. 91-512)

changed t h e w h o l e t o n e o f t h e

l e g i s l a t i o n from e f f i c i e n c y o f d i s p o s a l , t o r e f l e c t c o n c e r n w i t h t h e reclamat i o n o f e n e r g y and m a t e r i a l s from s o l i d w a s t e .

It authorized g r a n t s f o r

d e m o n s t r a t i n g new r e s o u r c e r e c o v e r y t e c h n o l o g y , and r e q u i r e d a n n u a l r e p o r t s

from t h e E n v i r o n m e n t a l P r o t e c t i o n Agency (EPA) on means o f promoting r e c y c l i n g

and r e d u c i n g t h e g e n e r a t i o n o f w a s t e .

A more a c t i v e , p r e v e n t i v e r o l e was embodied i n t h e Resource C o n s e r v a t i o n

and Recovery Act ( R C R A ) , s i g n e d by P r e s i d e n t Ford on O c t o b e r 2 1 , 1 9 7 6 , w h i c h

i n s t i t u t e d t h e f i r s t F e d e r a l r e g u l a t o r y f u n c t i o n i n t h e f i e l d by c r e a t i n g a

p e r m i t program f o r h a z a r d o u s w a s t e s , and p r o h i b i t i n g open dumps.

of RCRA c r e a t e s t h e h a z a r d o u s w a s t e management program.

Subtitle C

A w a s t e i s hazardous

i f i t i s i g n i t a b l e , c o r r o s i v e , r e a c t i v e , o r t o x i c , o r a p p e a r s on a l i s t o f

85 i n d u s t r i a l p r o c e s s w a s t e s t r e a m s and 416 d i s c a r d e d commercial p r o d u c t s and

chemicals.

"sludge

The 1976 l a w expanded t h e d e f i n i t i o n o f " s o l i d w a s t e s " t o i n c l u d e

. . ., and o t h e r d i s c a r d e d m a t e r i a l , i n c l u d i n g s o l i d , l i q u i d , semi-

s o l d , o r contained gaseous m a t e r i a l . "

S p e c i f i c a l l y excluded a r e i r r i g a t i o n

r e t u r n f l o w s , i n d u s t r i a l p l a n t s o u r c e d i s c h a r g e s , and n u c l e a r m a t e r i a l

c o v e r e d by t h e Atomic Energy A c t .

The broadened d e f i n i t i o n i s p a r t i c u l a r l y

important with regard to hazardous wastes, at least 95 percent of which are

liquids or sludges. A manifest system, effective since 1980, is used to track

such wastes from their point of generation, along their transportation routes,

to the place of final treatment, storage, or disposal.

(Separate authority

for the clean-up of abandoned waste sites is discussed in the later chapter

.

on "Super fund ")

Under RCRA, the generators of the waste must comply with regulations

concerning recordkeeping and reporting; the labelling of wastes; the use of

appropriate containers; providing information on the wastes' general chemical

composition to the transporters, treaters, and disposers; and the use of the

manifest system.

Facilities generating less than 1,000 kilograms per month

are generally exempted from the regulations; amendments to RCRA being considered by Congress in 1984 are expected to lower that exemption, probably

to 100 kilograms per month.

Transporters of hazardous waste must also meet certain standards.

These

regulations were coordinated by EPA with existing regulations of the Department

of Transportation. Treatment, storage, and disposal facilities are required to

have permits, to comply vith operating standards, to meet financial requirements in case of accidents, and to close d a m their facilities in accordance

vith EPA regulations.

States are encouraged and financially assisted to take over the hazardous

waste program, which went into effect November 19, 1980, from EPA.

'ho phases

of interim authorization for State programs began in 1981, vith the first phase

permitting a State to oversee generator and transporter standards, manifest

requirements, and some other matters.

into three parts:

Phase I1 authorization is broken dm7n

part A lets States issue permits for storage tanks, con-

t a i n e r s , and w a s t e p i l e s ; p a r t B g r a n t s a u t h o r i t y t o ~ e r m i ti n c i n e r a t o r s ;

and p a r t C c o v e r s l a n d d i s p o s a l f a c i l i t i e s .

A l l t h e S t a t e s e x c e p t Wyoming a r e a s s i s t i n g EPA i n implementing RCRA u n d e r

The c o o p e r a t i v e Arrangements

a g r e e m e n t s c a l l e d C o o p e r a t i v e Arrangements.

e n a b l e t h e S t a t e s t o p a r t i c i p a t e i n t h e program ( e . g . ,

assisting in

emit

e v a l u a t i o n o r o p e r a t i n g t h e m a n i f e s t s y s t e m ) and g a i n e x p e r i e n c e , a s w e l l a s

t o r e c e i v e f i n a n c i a l a s s i s t a n c e i n d e v e l o p i n g t h e i r programs w h i l e w o r k i n g

towards achievement of f u l l a u t h o r i z a t i o n .

( ~ y o m i n gh a s d e c l i n e d t o p a r t i c i -

p a t e i n t h e h a z a r d o u s w a s t e management program b e c a u s e o f b u d g e t a r y p r o b l e m s ,

r e q u i r i n g EPA t o u n d e r t a k e a l l a c t i v i t i e s i n t h a t S t a t e . )

Criminal v i o l a t i o n s of s u b t i t l e C ' s hazardous w a s t e p r o v i s i o n s a r e

p u n i s h a b l e by $50,000 f i n e s and 2 y e a r s imprisonment; knowingly e n d a n g e r i n g

human l i f e b r i n g s f i n e s o f $250,000 ($1 m i l l i o n f o r a company) and 5 y e a r s

imprisonment.

An i n v e n t o r y o f h a z a r d o u s w a s t e d i s p o s a l s i t e s i s t o b e under-

t a k e n t o a i d i m p l e m e n t a t i o n and e n f o r c e m e n t .

F i n a n c i a l and t e c h n i c a l a s s i s t a n c e was e a r l i e r a v a i l a b l e u n d e r s u b t i t l e D

o f RCRA t o a s s i s t S t a t e s i n d e v e l o p i n g t h e i r m n comprehensive p l a n s f o r s o l i d

v a s t e management, r e s o u r c e c o n s e r v a t i o n , and r e s o u r c e r e c o v e r y .

Open dumps

a r e o u t l a w e d ; t h e y must be c l o s e d o r upgraded t o s a n i t a r y l a n d f i l l s by

September 1 3 , 1984.

T e c h n i c a l a s s i s t a n c e teams from EPA p r o v i d e d f r e e t e c h -

n i c a l , m a r k e t i n g , f i n a n c i a l , and i n s t i t u t i o n a l a s s i s t a n c e .

Help w a s a l s o

a u t h o r i z e d f o r S t a t e s and l o c a l i t i e s f o r p r o j e c t s r e c o v e r i n g e n e r g y and

m a t e r i a l s from s o l i d w a s t e , t o a i d l o c a l i t i e s h a v i n g dumps l o c a t e d o v e r

d r i n k i n g w a t e r s u p p l i e s , and t o a s s i s t s m a l l r u r a l communities.

The modest

f i n a n c i a l and t e c h n i c a l a s s i s t a n c e p r o v i d e d by s u b t i t l e D ended in f i s c a l

y e a r 1981 a s p a r t o f o v e r a l l budget c u t b a c k s .

The Environmental P r o t e c t i o n Agency i s t h e l e a d agency under KCRA, which

a l s o c r e a t e d a n O f f i c e o f S o l i d Waste w i t h i n EPA, headed by a n A s s i s t a n t

Administrator.

The Department o f Commerce i s g i v e n s e v e r a l d u t i e s t o encourage

g r e a t e r c o m m e r c i a l i z a t i o n of r e s o u r c e r e c o v e r y t e c h n o l o g y .

A l l Federal

a g e n c i e s , i n c l u d i n g t h e l e g i s l a t i v e b r a n c h , a r e s u b j e c t t o t h e law and i t s

regulations.

Broad r e s e a r c h , development, and d e m o n s t r a t i o n a u t h o r i t i e s a r e c o n t a i n e d

i n s u b t i t l e H of RCRA.

A s e r i e s of s p e c i a l s t u d i e s , and i n f o r m a t i o n t r a n s f e r

a c t i v i t i e s a r e c a l l e d f o r , a l t h o u g h t h e l a t t e r have a l s o been e l i m i n a t e d f o r

budgetary reasons.

RCRA h a s been amended t w i c e .

Noncontroversial a d d i t i o n s c l a r i f y i n g

c e r t a i n s e c t i o n s o f t h e law and c o r r e c t i n g c l e r i c a l e r r o r s i n t h e t e x t v e r e

a t t a c h e d a s f l o o r amendments t o t h e Q u i e t Communities Act of 1978 (P.L.

6 0 9 , November 8 , 1 9 7 8 ) .

(P.L. 96-482,

95-

The S o l i d Waste D i s p o s a l Act Amendments of 1980

October 2 1 , 1980) v e r e somewhat more s u b s t a n t i v e and r e f l e c t e d

e x p e r i e n c e w i t h RCRA.

Tougher enforcement p o w e r s were g i v e n t o t h e Environ-

mental P r o t e c t i o n Agency (EPA) t o d e a l w i t h i l l e g a l dumpers of h a z a r d o u s

w a s t e ; EPA's a u t h o r i t y t o r e g u l a t e c e r t a i n high-volume,

l a v h a z a r d wastes

(knmn a s " s p e c i a l w a s t e s " ) was r e s t r i c t e d ; f u n d s v e r e a u t h o r i z e d t o c o n d u c t

a n i n v e n t o r y o f h a z a r d o u s w a s t e s i t e s ; and RCRA a u t h o r i z a t i o n s v e r e e x t e n d e d

t h r o u g h f i s c a l y e a r 1982.

CRS- 3 3

SUPERFUND

P r o p e r l y k n m n a s t h e Comprehensive E n v i r o n m e n t a l Response, c o m p e n s a t i o n ,

and L i a b i l i t y Act of 1980 (CERCLA, P u b l i c Law 96-510,

e n a c t e d December 11,

l 9 8 O ) , t h e "Superfund" law h a s f i v e main f e a t u r e s :

(i)

i t a u t h o r i z e s t h e F e d e r a l Government t o r e s p o n d t o h a z a r d o u s

substance s p i l l s or releases;

(ii)

i t c r e a t e s a $1.6 b i l l i o n fund t o pay f o r t h o s e emergency and

remedial clean-up responses;

( i i i ) i t c r e a t e s a n Agency f o r Toxic S u b s t a n c e s and D i s e a s e

Registry;

(iv)

i t p r o v i d e s f o r l i a b i l i t y and f i n a n c i a l r e s p o n s i b i l i t y ; and

(v)

i t s e t s up a $200 m i l l i o n fund t o c o v e r t h e c o s t s o f m o n i t o r i n g

and c a r i n g f o r p r e s e n t l y a c t i v e h a z a r d o u s w a s t e d i s p o s a l s i t e s , and l e g a l

l i a b i l i t y i n c u r r e d , a f t e r t h e y h a v e been c l o s e d down.

The f o l l o w i n g d i s c u s s i o n e l a b o r a t e s on t h e m a j o r components o f t h e

Superfund Act:

1.

RESPONSE (SECTION 1 0 4 )

Whenever a h a z a r d o u s s u b s t a n c e i s r e l e a s e d o r t h e r e i s a t h r e a t of

r e l e a s e i n t o t h e environment, t h e P r e s i d e n t i s a u t h o r i z e d t o t a k e a c t i o n .

H i s r e s p o n s e i s n o t c o n t i n g e n t on t h e n a t u r e o f t h e h a z a r d o u s s u b s t a n c e

s p i l l e d o r r e l e a s e d , h o w e v e r , e x c e p t t h a t p e t r o l e u m and n a t u r a l g a s a r e

excluded.

To r e c e i v e F e d e r a l a s s i s t a n c e t h e S t a t e must a s s u r e ( 1 ) t h a t i t

w i l l p r o v i d e f u t u r e m a i n t e n a n c e o f t h e s i t e ; ( 2 ) t h e a v a i l a b i l i t y o f any

needed o f f s i t e f a c i l i t y ; and ( 3 ) t h a t i t

r e m e d i a l a c t i o n , o r , i f t h e s i t e was

pay 10 p e r c e n t o f t h e c o s t s o f

by t h e S t a t e o r a l o c a l

government, t h a t i t w i l l pay 50 p e r c e n t of t h e c o s t s .

Within t h o s e l i m i t s ,

a S t a t e may a l s o be reimbursed f o r i t s e x p e n d i t u r e s between J a n u a r y 1 , 1978,

and t h e d a t e o f e n a c t m e n t .

The P r e s i d e n t s h a l l c o n s u l t w i t h t h e a f f e c t e d

S t a t e b e f o r e r e s p o n d i n g , and h i s a c t i o n s a r e t o b e , t o t h e e x t e n d p r a c t i c a b l e ,

i n a c c o r d a n c e w i t h t h e N a t i o n a l Contingency P l a n .

S e c t i o n 105 of CERCLA c a l l s f o r t h e N a t i o n a l Contingency P l a n ( p r e p a r e d

under s e c t i o n 311 o f t h e F e d e r a l Water P o l l u t i o n C o n t r o l A c t ) t o b e r e v i s e d

and r e p u b l i s h e d t o r e f l e c t t h e p r o v i s i o n s o f t h i s a c t .

w i t h i n 180 d a y s o f enactment ( i . e . ,

I t was t o be r e i s s u e d

by J u n e 9 , 1 9 8 1 ) , b u t a p p e a r e d i n f i n a l

form on J u l y 1 6 , 1982 (40 CFK P a r t 3 0 0 ) .

One p a r t o f t h e c o n t i n g e n c y p l a n

i s t h e N a t i o n a l P r i o r i t i e s L i s t on which EPA i s t o r a n k t h e most h a z a r d o u s

abandoned w a s t e s i t e s , making them e l i g i b l e f o r Superfund c l e a n u p .

The

l i s t of 418 s i t e s was announced December 2 0 , 1982; u p d a t e s b r o u g h t t h e

number t o 546 s i t e s by September, 1983.

2.

THE FUND (SECTIONS 211 AND 221)

The r e s p o n s e a c t i v i t i e s w i l l be

aid from t h e Superfund i t s e l f . *-/

A t o t a l o f $1.6 b i l l i o n i s t o b e r a i s e d o v e r 5 y e a r s , 8 7 . 5 p e r c e n t o f i t

coming from t a x e s on 42 d e s i g n a t e d chemical and p e t r o l e u m f e e d s t o c k s , and

t h e remainder from c o n g r e s s i o n a l a p p r o p r i a t i o n s .

*/ T i t l e 11 of P u b l i c Law 96-510, c r e a t i n g t h e c l e a n u p f u n d s , i s l a b e l l e d

t h e ~ a z a r d o u sS u b s t a n c e Response Revenue Act of 1980, which amends t h e I n t e r n a l

Revenue Code o f 1954. S e c t i o n 211 imposes t a x e s on p e t r o l e u m and c e r t a i n

c h e m i c a l s . S e c t i o n 221 e s t a b l i s h e s t h e Hazardous S u b s t a n c e Response T r u s t Fund

( t h e Superfund).

S e c t i o n 222 l i m i t s t h e l i a b i l i t y o f t h e United S t a t e s t o t h e

amounts i n t h e fund. S e c t i o n 223 c o n t a i n s a d m i n i s t r a t i v e p r o v i s i o n s , i n c l u d i n g

t h e a u t h o r i t y t o borrow from t h e g e n e r a l fund o f t h e T r e a s u r y .

S e c t i o n 231

imposes t a x e s on h a z a r d o u s w a s t e s f o r t h e P o s t c l o s u r e L i a b i l i t y T r u s t Fund,

and s e c t i o n 232 c r e a t e s t h a t fund.

C e r t a i n c h e m i c a l s l i s t e d i n t h e t a x t a b l e a r e exempted from payment o f

t h e t a x when used f o r s p e c i f i e d p u r p o s e s , o r when produced i n c e r t a i n ways.

Thus, methane and b u t a n e a r e excused from t h e t a x when u s e d a s f u e l , a s a r e

s u b s t a n c e s used i n t h e p r o d u c t i o n o f f e r t i l i z e r ( n i t r i c a c i d , s u l f u r i c a c i d ,

ammonia, and methane u s e d t o produce ammonia).

A l s o exempted a r e s u l f u r i c

a c i d when produced a s a b y p r o d u c t of a i r p o l l u t i o n c o n t r o l , and a n y c h e m i c a l s

d e r i v e d from c o a l .

U n l e s s e x t e n d e d , t h e t a x e s w i l l t e r m i n a t e on September 3 0 , 1985, b u t

c o u l d end e a r l i e r i f demands on t h e fund do n o t exceed s p e c i f i e d amounts,

which appears unlikely.

I n a d d i t i o n t o t a x e s and a p p r o p r i a t i o n s , t h e fund

r e c e i v e s r e i m b u r s e m e n t s from p o l l u t e r s f o r c l e a n u p and o t h e r r e s p o n s e

a c t i v i t i e s u n d e r t h i s a c t and under s e c t i o n 311 o f t h e C l e a n Water A c t , p l u s

any p e n a l t i e s and p u n i t i v e damages a s s e s s e d u n d e r o t h e r p r o v i s i o n s o f CERCLA.

The p u r p o s e s t o which t h e fund can be p u t a r e d e t a i l e d i n s e c t i o n 111 and

i n c l u d e ( 1 ) r e s p o n s e c o s t s ; ( 2 ) c l a i m s made b u t n o t s a t i s f i e d u n d e r s e c t i o n

311 of t h e C l e a n Water A c t ; ( 3 ) c l a i m s by t h e U.S.

o r S t a t e governments f o r

l o s s o f n a t u r a l r e s o u r c e s ; and ( 4 ) such r e l a t e d e x p e n d i t u r e s a s t h e c o s t s

of a s s e s s i n g n a t u r a l r e s o u r c e s l o s s e s , t h e c o s t s o f e p i d e m i o l o g i c s t u d i e s ,

and t h e c o s t s o f a program t o p r o t e c t t h e h e a l t h and s a f e t y o f employees

engaged i n r e s p o n d i n g t o a h a z a r d o u s s u b s t a n c e r e l e a s e .

An a n n u a l r e p o r t i s t o b e made t o Congress on t h e f i n a n c i a l c o n d i t i o n

and t h e o p e r a t i o n s o f t h e f u n d , i n c l u d i n g t h e o u t l o o k f o r t h e n e x t 5 y e a r s .

The fund i s g i v e n a u t h o r i t y t o borrow, w i t h i n t e r e s t , from t h e T r e a s u r y a s

much a s 1 y e a r ' s r e c e i p t s i n a d v a n c e .

3.

AGENCY FOR TOXIC SUBSTANCESAND D.ISEASE REGISTRY (SECTION 1 0 4 ( i ) )

T h i s agency i s c r e a t e d i n t h e P u b l i c H e a l t h S e r v i c e t o c a r r y o u t t h e

health-related

authorities i n the act.

It i s a l s o t o maintain a r e g i s t r y

o f p e r s o n s cxposed t o t o x i c s u b s t a n c e s ; m a i n t a i n a n i n v e n t o r y o f l i t e r a t u r e ,

r e s e a r c h , and s t u d i e s on t h e h e a l t h e f f e c t s of t o x i c s u b s t a n c e c o n t a m i n a t i o n ;

p r o v i d e m e d i c a l c a r e and t e s t i n g i n c a s e s of p u b l i c h e a l t h e m e r g e n c i e s ; and

p e r i o d i c a l l y conduct s u r v e y s and s c r e e n i n g programs t o d e t e r m i n e t h e r e l a t i o n s h i p b e t w e e n e x p o s u r e t o t o x i c s u b s t a n c e s and i l l n e s s .

F a c i l i t i e s of t h e

P u b l i c H e a l t h S e r v i c e a r e t o be made a v a i l a b l e t o exposed p e r s o n s i n c a s e s

of p u b l i c h e a l t h e m e r g e n c i e s .

4.

LIABILITY AND FINANCIAL RESPONSIBILITY (SECTIONS107

AND

108)

7

G e n e r a l l y s p e a k i n g , c a r r i e r s , d i s p o s a l f a c i l i t y o p e r a t o r s , and w a s t e

g e n e r a t o r s , a r e l i a b l e f o r r e s p o n s e c o s t s and damage t o n a t u r a l r e s o u r c e s .

L i m i t s t o l i a b i l i t y under s e c t i o n 107 a r e s e t a s f o l l o w s :

-- f o r v e s s e l s c a r r y i n g h a z a r d o u s s u b s t a n c e s a s c a r g o o r r e s i d u e ,

t h e g r e a t e r amount of e i t h e r $300 p e r g r o s s t o n o r $5 m i l l i o n

(and up t o h a l f t h i s maximum f o r o t h e r v e s s e l s ) ;

-- f o r motor v e h i c l e s , a i r c r a f t , p i p e l i n e s , o r r o l l i n g s t o c k , $50

m i l l i o n o r a l e s s e r amount s e t by r e g u l a t i o n s b u t i n no e v e n t

l e s s t h a n $5 m i l l i o n ($8 m i l l i o n i n t h e c a s e o f a r e l e a s e o f

h a z a r d o u s s u b s t a n c e s l i s t e d under s e c t i o n 311 of t h e Clean

Water A c t ) ;

-- and f o r any o t h e r f a c i l i t y , t h e t o t a l of a l l c o s t s o f r e s p o n s e

p l u s $50 m i l l i o n f o r any damages.

-

There a r e no l i m i t s t o l i a b i l i t y i f t h e h a z a r d o u s s u b s t a n c e r e l e a s e i s

due t o m i s c o n d u c t ; n e g l i g e n c e ; v i o l a t i o n o f any s a f e t y , c o n s t r u c t i o n , o r

o p e r a t i n g s z a n d a r d s o r r e g u l a t i o n s ; o r i f c o o p e r a t i o n and a s s i s t a n c e r e q u e s t e d

by a p u b l i c o f f i c i a l i n c o n n e c t i o n w i t h r e s p o n s e a c t i v i t i e s i s d e n i e d .

p u n i t i v - damages a r e p o s s i b l e i n some c a s e s .

to t\c

RC

t.

Triple

A l l Federal agencies a r e subject

h n e r s and o p e r a t o r s o f v e s s e l s and f a c i l i t i e s a r e r e q u i r e d t o s h m

evidence of f i n a n c i a l r e s p o n s i b i l i t y (such a s i n s u r a n c e ) .

300 g r o s s t o n s ( e x c e p t n o n - s e l f - p r o p e l l e d

For v e s s e l s o v e r

barges not c a r r y i n g hazardous

s u b s t a n c e s a s c a r g o ) such f i n a n c i a l r e s p o n s i b i l i t y i s t o b e t h e g r e a t e r of

$300 p e r g r o s s t o n o r $5 m i l l i o n .

For f a c i l i t i e s , t h e amount w i l l b e s e t

i n r e g u l a t i o n s and phased i n o v e r a 3-6 y e a r p e r i o d , b e g i n n i n g n o t e a r l i e r

t h a n 5 y e a r s a f t e r enactment o f t h e law ( i . e . ,

1985).

I n t h e meantime,

one of t h e s t u d i e s c a l l e d f o r i n s e c t i o n 301 o f CERCLA i s t o d e t e r m i n e t h e

a v a i l a b i l i t y of adequate p r i v a t e insurance p r o t e c t i o n .

The f i n a l r e p o r t from

t h e T r e a s u r y Department i n J u n e 1983 ("The Adequacy o f P r i v a t e I n s u r a n c e

P r o t e c t i o n under S e c t i o n 107 o f [CERCLA]") found t h a t " b o t h t h e m a r i n e and

the property-casualty

i n s u r a n c e m a r k e t s have u n d e r t a k e n t o r e s p o n d t o t h e

growing need f o r p o l l u t i o n i n s u r a n c e c o v e r a g e .

Nevertheless, i t i s c l e a r

... t h a t b o t h t h e p r o v i d e r s and t h e p u r c h a s e r s o f i n s u r a n c e a r e most

s e r i o u s l y concerned a b o u t t h e ' w o r k a b i l i t y '

t o CERCLA."

o f t h e l i a b i l i t y regime a t t e n d a n t

FEDERAL INSECTICIDE, FUNGICIDE, AND RODENTICIDE ACT (FIFRA)

P e s t i c i d e s a r e chemicals used t o c o n t r o l many k i n d s o f p e s t s :

insects

t h a t a t t a c k c r o p s , d e s t r o y m a t e r i a l s , and s e r v e a s d i s e a s e c a r r i e r s ; weeds;

f u n g i and o t h e r d i s e a s e - c a u s i n g organisms; ( s o i l ) nematodes; and o t h e r s .

They have become major components o f b o t h a g r i c u l t u r a l p r o d u c t i o n and h e a l t h

protection.

Against t h e i r b e n e f i t s , c e r t a i n h a z a r d s must b e weighed.

P e s t i c i d e s may be h i g h l y t o x i c , some a r e p e r s i s t e n t i n t h e environment, and

many pose r i s k s t o n o n t a r g e t organisms.

During World War 11, s y n t h e t i c o r g a n i c p e s t i c i d e s were developed f o r

u s e i n t h e war e f f o r t .

rapidly.

A f t e r t h e war, t h e p e s t i c i d e i n d u s t r y expanded

I n 1947, Congress e n a c t e d t h e F e d e r a l I n s e c t i c i d e , F u n g i c i d e , and

R o d e n t i c i d e Act (FIFRA) t o p r o t e c t f a r m e r s from i n e f f e c t i v e and dangerous

pesticides.

It accomplished t h i s through r e g i s t r a t i o n o f l a b e l s t h a t were

r e q u i r e d on a l l p e s t i c i d e s .

The r e g u l a t o r y a u t h o r i t y t o c o n t r o l p e s t i c i d e s

u s e comes through t h e requirement t h a t b e f o r e a p e s t i c i d e c a n b e marketed,

i t must b e g r a n t e d a " r e g i s t r a t i o n " , a d e c i s i o n based on a d e t e r m i n a t i o n

of what u s e s a r e s a f e and any n e c e s s a r y r e s t r i c t i o n s on u s e .

Over t h e n e x t two d e c a d e s , c o n c e r n grew about h a z a r d s t o h e a l t h and

t h e environment from p e s t i c i d e s .

I n r e s p o n s e , Congress e n a c t e d t h e F e d e r a l

Environmental P e s t i c i d e C o n t r o l Act i n 1972 (P.L.

92-516).

These amendments,

which r e w r o t e FIFRA, provided f o r d i r e c t c o n t r o l s on t h e u s e of p e s t i c i d e s ,

f o r c l a s s i f i c a t i o n of selected pesticides into a r e s t r i c t e d use category,

f o r r e g i s t r a t i o n o f manufacturing p l a n t s , and f o r a n a t i o n a l m o n i t o r i n g

program f o r p e s t i c i d e r e s i d u e s .

I t a l s o added e n v i r o n m e n t a l ( e c o l o g i c a l )

e f f e c t s t o t h e r i s k s t o be weighed i n t h e p e s t i c i d e r e g i s t r a t i o n p r o c e s s .

REGISTRATION OF PESTICIDE PRODUCTS

B e f o r e a p e s t i c i d e can be used i n t h e U n i t e d S t a t e s , i t must undergo a

pre-market

r e v i e w o f i t s p o t e n t i a l h e a l t h and e n v i r o n m e n t a l e f f e c t s .

a kind o f l i c e n s i n g p r o c e s s .

This i s

R e g i s t r a t i o n , however, r e f e r s t o t h e p r o d u c t s

a l l o w e d t o be u s e d , n o t who i s allowed t o u s e t h e p r o d u c t s .

S e c t i o n 3 o f FIFRA s e t s o u t t h e p r o c e d u r e s f o r r e g i s t e r i n g p e s t i c i d e s .

T h i s d e c i s i o n i s based on i n f o r m a t i o n which t h e m a n u f a c t u r e r must submit i n

s u p p o r t of a r e g i s t r a t i o n .

EPA must d e c i d e t h a t a proposed p e s t i c i d e

r e g i s t r a t i o n " w i l l n o t g e n e r a l l y c a u s e u n r e a s o n a b l e a d v e r s e e f f e c t s " on t h e

environment.

The d a t a r e q u i r e d t o be s u b m i t t e d i n s u p p o r t of a r e g i s t r a t i o n i s

e x t e n s i v e and e x p e n s i v e .

The c o s t o f t h i s b a t t e r y o f h e a l t h and s a f e t y d a t a ,

f i e l d t r i a l d a t a , and t h e l i k e , c a n be many m i l l i o n s of d o l l a r s .

Limited

exemptions from c e r t a i n r e q u i r e m e n t s a r e a l l o w e d under c e r t a i n c o n d i t i o n s .

A m a n u f a c t u r e r may s e e k t o r e g i s t e r t h e same p e s t i c i d e f o r m u l a t i o n

a l r e a d y r e g i s t e r e d by a c o m p e t i t o r .

To p r o t e c t t h e economic r i g h t s o f t h e

m a n u f a c t u r e r who o r i g i n a l l y g e n e r a t e d t h e r e q u i r e d d a t a , S e c t i o n 3 p r o v i d e s

f o r compensation o f d a t a c o s t s .

FIFRA a l s o p r o v i d e s a t e n - y e a r p e r i o d o f

" e x c l u s i v e u s e ," f o r d a t a s u b m i t t e d a f t e r 1978, d u r i n g which t h e o r i g i n a l

r e g i s t r a n t may n o t be compelled t o s h a r e t h e s u p p o r t i n g d a t a .

These d a t a s h a r i n g p r o v i s i o n s have c o n t i n u a l l y been p o i n t s of c o n t e n t i o n

among m a n u f a c t u r e r s .

The c o n s t i t u t i o n a l i t y o f t h e d a t a p r o t e c t i o n p r o v i s i o n s

o f S e c t i o n 3 i s nm b e f o r e t h e U.S. Supreme Court ( R u c k e l s h a u s v . Monsanto

C o . ) , a s p a r t o f a n EPA a p p e a l of a l o w e r c o u r t d e c i s i o n v h i c h r u l e d

-

a g a i n s t t h e Agency.

The c a s e i s e x p e c t e d t o b e d e c i d e d d u r i n g t h e summer

months of 1984.

S e c t i o n 3 a l s o a l l o w s EPA t o c l a s s i f y p e s t i c i d e s f o r r e s t r i c t e d o r g e n e r a l

R e s t r i c t e d u s e p r o d u c t s a r e o n e s judged t o b e more d a n g e r o u s t o t h e

use.

a p p l i c a t o r o r t o t h e environment.

R e s t r i c t e d p r o d u c t s c a n b e u s e d o n l y by

t h o s e who h a v e been " c e r t i f i e d t ' t h r o u g h a S t a t e program, d e s i g n e d t o a s s u r e

t h e competence of t h e a p p l i c a t o r i n p r o p e r l y u s i n g p e s t i c i d e p r o d u c t s .

A u t h o r i t y f o r F e d e r a l c e r t i f i c a t i o n o f t h o s e c o m p l e t i n g t h e i r t r a i n i n g under

a S t a t e program i s found i n S e c t i o n 4 of FEFRA.

I f t h e proposed r e g u l a t i o n i s f o r u s e on a food c r o p , EPA must a l s o

d e t e r m i n e what i s a s a f e l e v e l of p e s t i c i d e r e s i d u e on t h e f o o d s t u f f .

These

residue "tolerances"

a r e e s t a b l i s h e d by EPA, b u t e n f o r c e d by t h e Food and

Drug A d m i n i s t r a t i o n .

The FDA h a s t h e a u t h o r i t y t o d e c l a r e a f o o d s t u f f

"adulterated"

i f t h e r e s i d u e exceeds t h e s p e c i f i e d t o l e r a n c e .

'

FDA i s respon-

s i b l e f o r m o n i t o r i n g and e n f o r c i n g t h e s e r e s i d u e l e v e l s .

I n s t r u c t i o n s f o r t h e p r o p e r u s e o f p r o d u c t s i s g i v e n on t h e p e s t i c i d e

label.

Use i n c o n s i s t e n t w i t h l a b e l d i r e c t i v e s i s a v i o l a t i o n of FIFRA.

REREGISTRATION

Many p e s t i c i d e s w e r e r e g i s t e r e d f o r u s e b e f o r e t h e c u r r e n t e x t e n s i v e

d a t a requirements were i n p l a c e .

Congress d i r e c t e d EPA t o " r e r e g i s t e r "

t h e s e o l d e r p r o d u c t s , t o a s s e s s t h e i r s a f e t y i n l i g h t of c u r r e n t s t a n d a r d s .

EPA c r e a t e s " r e g i s t r a t i o n s t a n d a r d s " t o e v a l u a t e t h e s e o l d e r p r o d u c t s , b u t

t h i s h a s proven t o be a v e r y l o n g p r o c e s s .

Earlier reregistration deadlines

c o n t a i n e d i n t h e s t a t u t e have nmT been dropped a l t o g e t h e r .

Meanwhile, FIFRA

a 1lm7s " c o n d i t i o n a l " r e g i s t r a t ion under Sect ion 3 f o r t h e s e o l d e r products

now u n d e r g o i n g f u r t h e r d a t a development o r r e v i e w .

C o n d i t i o n a l r e g i s t r a t i o n a l may a l s o be g r a n t e d i n some c a s e s t o new

A l l registrations are limited

p r o d u c t s undergoing f u r t h e r d a t a development.

t o f i v e y e a r s , so r e r e g i s t r a t i o n i s a continuous process.

OTHER REGISTRATION AUTHORITY

B e s i d e s t h e p r o v i s i o n s o f S e c t i o n 3 , o t h e r p a r t s of FIFRA a l l m f o r u s e

of p e s t i c i d e products i n c e r t a i n s p e c i a l circumstances.

FIFRA S e c t i o n 5

a l l o w s E x p e r i m e n t a l Use P e r m i t s f o r p u r p o s e s o f r e s e a r c h and f u r t h e r s t u d y .

S e c t i o n 18 a l l o w s f o r "emergency exemptions" from t h e p r o v i s i o n s o f FIFRA

t o be g r a n t e d t o F e d e r a l o r S t a t e a g e n c i e s .

In a d d i t i o n , Section 24(c) allows

a S t a t e t o g r a n t a d d i t i o n a l u s e s o f a f e d e r a l l y r e g i s t e r e d p r o d u c t t o meet

" s p e c i a l l o c a l needs

."

I n r e c e n t y e a r s , t h e number of emergency exemption and s p e c i a l l o c a l

needs r e g i s t r a t i o n s h a v e r i s e n s u b s t a n t i a l l y , and have been t h e s u b j e c t of

c o n g r e s s i o n a l o v e r s i g h t and proposed amendments.

CANCELLING OR SUSPENDING A REGISTRATION

FIFRA S e c t i o n 6 p r o v i d e s EPA w i t h a u t h o r i t y t o c a n c e l o r immediately

suspend a r e g i s t r a t i o n based on t h e f i n d i n g o f " u n r e a s o n a b l e a d v e r s e e f f e c t s . "

Both a c t i o n s c a n be a p p e a l e d by t h e r e g i s t r a n t .

I f appealed, a cancellation

o r d e r i n i t i a t e s a d e c i s i o n review p r o c e s s d u r i n g v h i c h t h e p r o d u c t may cont i n u e t o be m a r k e t e d .

In c o n t r a s t , appealing a suspension order i n i t i a t e s a

d e c i s i o n review p r o c e s s d u r i n g which t h e p r o d u c t may n o t c o n t i n u e t o b e s o l d .

S i n c e 1 9 7 6 , EPA h a s a t t e m p t e d t o b a l a n c e t h e r i s k s and b e n e f i t s of

p e s t i c i d e s s u s p e c t e d o f c a u s i n g u n r e a s o n a b l e a d v e r s e e f f e c t s through a l e s s

formal p r o c e s s .

The " R e b u t t a b l e Presumption A g a i n s t R e g i s t r a t i o n (RPAR)"

program i s d e s i g n e d t o i n i t i a t e a s y s t e m a t i c and i n t e n s i v e comparison of t h e

r i s k s and b e n e f i t s o f p e s t icicles which exceed some p r e - e s t a b l i s h e d r i s k

criteria.

F o r example, a compound may r e s u l t i n s e v e r e damagz t o a q u a t i c

organisms o r have been found oncogenic ( t u m o r - p r o d u c i n g )

carcinogenecity t e s t .

i n a rodent

These t r i g g e r s , once e x c e e d e d , l e a d EPA t o s c r u t i n i z e

t h e h a z a r d e v i d e n c e , e v a l u a t e t h e r i s k s t o h e a l t h and t h e e n v i r o n m e n t , s n d

determine the optimal r i s k reduction s t r a t e g y t o eliminate unreasonable

adverse e f f e c t s .

T h i s s t r a t e g y may i n c l u d e c a n c e l l a t i o n o f some o r a l l o f

a p r o d u c t ' s r e g i s t r a t i o n s , use r e s t r i c t i o n s , p r o t e c t i v e c l o t h i n g r e q u i r e m e l ~ t s ,

and t h e l i k e .

I f a p e s t i c i d e i s c a n c e l l e d o r suspended i n o r d e r t o p r e v e n t a n

imminent h a z a r d , S e c t i o n 15 allcws

p e r s o n s owning a n y q u a n t i t y o f t h e p r o d u c t

t o be i n d e m n i f i e d by EPA f o r t h e economic l o s s o f t h e unused p r o d u c t .

This

u s u a l l y i s n o t n e c e s s a r y however, a s EPA h a s g e n e r a l l y a l l o w e d e x i s t i n g

s t o c k s of such p r o d u c t s t o be u s e d .

I f EPA i s s u e s a r e q u i r e m e n t f o r d a t a t o s u p p o r t a r e r e g i s t r a t i o n , and

development o f t h e d a t a i s n o t f o r t h c o m i n g , p r o c e e d i n g s f o r s u s p e n d i n g t h e

p r o d u c t ' s r e g i s t r a t i o n a r e a u t o m a t i c a l l y i n i t i a t e d by S e c t i o n 3 ( c ) ( 2 ) ( ~ ) .

TRADE SECRETS AND PUBLIC DISCLOSURE

W i t h i n 30 d a y s a f t e r a r e g i s t r a t i o n i s g r a n t e d , S e c t i o n 3 d i r e c t s EPA

t o make t h e r e q u i r e d d a t a p u b l i c l y a v a i l a b l e .

However, S e c t i o n 10 o f FIFRA p r o v i d e s f o r t h e p r o t e c t i o n o f c e r t a i n

d a t a a s trade s e c r e t information.

Section 10(g) f u r t h e r r e s t r i c t s disclosure

of i n f o r m a t i o n t o f o r e i g n and m u l t i n a t i o n a l p r e s t i c i d e p r o d u c e r s o r t h e i r

agents.

S e c t i o n 10 t r a d e s e c r e t i s s u e s a r e a l s o p a r t o f t h e l a w s u i t c u r r e n t l y

-

b e i n g reviewed by t h e Supreme Court ( ~ u c k e l s h a u sv . Monsanto Co.).

STATE ROLES

T h e i n d i v i d u a l S t a t e s a r e r e s p o n s i b l e f o r t h e i r t r a i n i n g program t o

c e r t i f y p e s t i c i d e a p p l i c a t o r s i n a c c o r d a n c e w i t h S e c t i o n 4 o f FIFRA.

S e c t i o n 26 g r a n t s t h e S t a t e s primary enforcement a u t h o r i t y f o r any p e s t i c i d e

use v i o l a t i o n s .

Emergency exemption and s p e c i a l l o c a l needs r e g i s t r a t i o n s

a r e i n i t i a l l y r e v i e w e d a t t h e S t a t e l e v e l and can be a p p r o v e d , s u b j e c t t o

a F e d e r a l EPA d e n i a l based on c e r t a i n r e l a t i v e l y narrow c o n d i t i o n s .

MISCELLANEOUS PROVISIONS

FIFRA a l s o c o n t a i n s p r o v i s i o n s r e g a r d i n g :

-- r e g i s t r a t i o n and i n s p e c t i o n of e s t a b l i s h m e n t s

which manufacture o r s e l l p e s t i c i d e products;

-- r e c o r d k e e p i n g ;

-- p e n a l t i e s f o r m i s u s i n g o r m i s l a b e l l i n g a p e s t i c i d e ;

-- d i s p o s a l and t r a n s p o r t a t i o n of p e s t i c i d e s ;

-- r e s e a r c h i n t o p e s t c o n t r o l methods;

-- m o n i t o r i n g t h e u s e and impact of p e s t i c i d e s ; and

-- c o o p e r a t i v e agreements between S t a t e and F e d e r a l

agencies

.

TOXIC SUBSTANCES CONTROL ACT

Federal toxic substances control legislation tras originally proposed in

1971.

The President's Council on Environmental Quality published a report,

"Toxic Substances," outlining the need for comprehensive chemical control

legislation. The House and Senate each passed bills in both the 92nd and

93rd Congresses, but controversies over the scope of premarket screening,

costs, and the relationship to other regulatory laws stymied final action.

Episodes of damage to health and environment--including the kepone pesticide

incident in Hopewell, Virginia, the contamination of the Hudson and other

waterways by PCB, and the threat of stratospheric ozone depletion from

chloroflurocarbon emissions--together vith more exact assessments of the

costs of imposing toxic substances controls--opened the way for final

passage of the legislation, and President Ford signed the Toxic Substances

Control Act (TSCA), (P.L. 94-469) into law on October 11, 1976.

TSCA was designed to provide EPA vith broad authority to:

(a) induce testing of existing chemicals, those currently in

commercial production or use (Section 4);

(b) prevent future chemical risks through premarket screening

and regulatory tracking of new chemical products (section

5);

(c) control unreasonable risks of chemicals already kn-~n or as

they are discovered (Section 6); and

( d ) g a t h e r and d i s s e m i n a t e i n f o r m a t i o n a b o u t c h e m i c a l p r o d u c t i o n ,

u s e , and p o s s i b l e a d v e r s e e f f e c t s t o human h e a l t h and t h e

environment ( S e c t i o n 8 ) .

TESTING OF CHEMICALS

Many c h e m i c a l s , even some i n w i d e s p r e a d u s e , a r e n o t w e l l c h a r a c t e r i z e d

a s t o t h e i r p o t e n t i a l h e a l t h and e n v i r o n m e n t a l e f f e c t s .

One o f t h e major

g o a l s of TSCA was t o induce t h e development of t e s t d a t a by p r o d u c e r s of

c h e m i c a l s i n commerce.

S e c t i o n 4 of TSCA g i v e s EPA t h e a u t h o r i t y t o r e q u i r e

t h e development of t e s t d a t a on e x i s t i n g c h e m i c a l s .

TWO broad r e g u l a t o r y t h r e s h o l d s a r e c o n t a i n e d i n TSCA:

"may p r e s e n t a n u n r e a s o n a b l e r i s k " ;

1 ) t h e chemical

o r 2 ) t h e c h e m i c a l i s produced i n v e r y

l a r g e volume ( w i t h p o t e n t i a l v i d e e x p o s u r e a s a r e s u l t ) .

t i o n , EPA must f u r t h e r d e t e r m i n e b o t h :

Under e i t h e r condi-

a) existing data i s insufficient to

r e s o l v e t h e q u e s t i o n of s a f e t y ; and b ) t e s t i n g i s n e c e s s a r y t o d e v e l o p t h e

data.

To h e l p EPA w i t h t h e q u e s t i o n of which c h e m i c a l s s h o u l d f i r s t b e

c o n s i d e r e d f o r t e s t i n g , and t o c o o r d i n a t e t e s t i n g n e e d s and e f f o r t s a c r o s s

government a g e n c i e s , TSCA c r e a t e d a n I n t e r a g e n c y T e s t i n g Committee ( I T C ) .

The ITC c a n recommend c h e m i c a l s e v e r y s i x months t o b e c o n s i d e r e d by EPA

f o r h a v i n g a t e s t r u l e promulgated.

50 c h e m i c a l s a t any t i m e .

The "ITC l i s t " c a n c o n t a i n no more t h a n

According t o TSCA, EPA must w i t h i n one y e a r e i t h e r

i s s u e a t e s t p r o p o s a l o r a n o t i c e e x p l a i n i n g why no t e s t i n g i s needed.

The I T C t h u s makes a n i n i t i a l d e t e r m i n a t i o n o f p r i o r i t i e s f o r f u r t h e r

EPA c o n s i d e r a t i o n .

The ITC u s e s v a r i o u s s e l e c t i o n c r i t e r i a and c o n d u c t s a

q u i c k l i t e r a t u r e r e v i e w t o h e l p make i t s recommendations.

ITC had recommended 7 5 c h e m i c a l s on 1 3 l i s t s .

Through 1983 t h e

PREMANUFACTURE NOTIFICATLION

The most i n n o v a t i v e a s p e c t o f TSCA i s S e c t i o n 5 , which r e q u i r e s a

p r e m a n u f a c t u r e s c r e e n of new c h e m i c a l p r o d u c t s .

Such s c r e e n i n g s h o u l d

prevent f u t u r e widespread contamination of t h e environment.

The i d e a i s

t o have a p r e m a n u f a c t u r e review a s s u r e t h a t p o t e n t i a l "bad a c t o r c h e m i c a l s "

a r e i d e n t i f i e d and c o n t r o l l e d b e f o r e t h e i r u s e becomes w i d e s p r e a d .

The

l e g i s l a t i v e h i s t o r y i n c l u d e s a p r e s u m p t i o n t h a t t e s t i n g o f new p r o d u c t s

would t a k e p l a c e b e f o r e b e i n g w i d e l y u s e d , e i t h e r a s t h e c h e m i c a l was

d e v e l o p e d , o r a s i t s m a r k e t s grew.

A t t h e same t i m e , TSCA f o r b i d s b l a n k e t

t e s t i n g r e q u i r e m e n t s f o r a l l new c h e m i c a l s i n o r d e r t o a v o i d s t i f f l i n g

innovation i n t h e chemical i n d u s t r y .

EPA h a s t o d e c i d e w h a t c h e m i c a l s ,

o r which c a t e g o r i e s o f c h e m i c a l s , d e s e r v e p r e m a r k e t t e s t i n g .

TSCA a l s o p r o v i d e s a u t h o r i t y f o r EPA t o r e q u i r e a l a t e r r e n o t i f i c a t i o n

t h a t a c h e m i c a l ' s u s e s a r e e x p a n d i n g , i n a r e a s o f " s i g n i f i c a n t new u s e , " and

a l l o w s EPA t o r e q u i r e t e s t i n g a t t h i s p o i n t .

The i d e a i s t h a t t h e m a r k e t

f o r a c h e m i c a l may grow t o i n c l u d e u s e s which p r e s e n t a g r e a t e r r i s k .

For

example, t h e i n i t i a l m a r k e t f o r a c a u s t i c d e t e r g e n t a d d i t i v e may be i n d u s t r i a l u s e s , and l a t e r t h e market may i n c l u d e consumer u s e s .

EPA c a n a l l o w

t h e i n i t i a l u s e w i t h a r e q u i r e m e n t t h a t t h e y b e n o t i f i e d o f t h e second u s e ,

and a t t h a t t i m e some f u r t h e r t e s t i n g r e q u i r e m e n t s may b e imposed.

REGULATORY CONTROLS

The most g e n e r a l a u t h o r i t y t o r e g u l a t e c h e m i c a l h a z a r d s i s c o n t a i n e d

i n S e c t i o n 6 of TSCA.

EPA i s g i v e n h i g h l y f l e x i b l e p m e r s t o c o n t r o l "an

u n r e a s o n a b l e r i s k of i n j u r y t o h e a l t h o r t h e environment."

u n r e a s o n a b l e r i s k s EPA c a n :

To e l i m i n a t e

-- p r o h i b i t t h e m a n u f a c t u r e o r c e r t a i n u s e s of a c h e m i c a l ;

-- r e q u i r e l a b e l i n g ;

-- l i m i t t h e volume of p r o d u c t i o n o r c o n c e n t r a t i o n ;

-- r e q u i r e r e c o r d - k e e p i n g a b o u t p r o d u c t i o n ;

-- c o n t r o l d i s p o s a l methods;

-- r e q u i r e n o t i f i c a t i o n o f consumers; o r

-- r e q u i r e r e p l a c e m e n t of r e p u r c h a s e of p r o d u c t s .

EPA a l s o h a s t h e f l e x i b i l i t y t o impose any o f t h e s e r e q u i r e m e n t s i n c o m b i n a t i o n

o r by r e g i o n .

A t t h e same t i m e , EPA i s r e q u i r e d t o u s e t h e " l e a s t burdensomett

r e g u l a t o r y a p p r o a c h even i n c o n t r o l l i n g u n r e a s o n a b l e r i s k s .

S e c t i o n 6 ( e ) a l s o d i r e c t s EPA t o t a k e s p e c i f i c measures t o c o n t r o l t h e

r i s k s from p o l y c h l o r i n a t e d b i p h e n y l s (PcBs).

INFORMATION-GATHERING

S e c t i o n 8 of TSCA p r o v i d e s i n f o r m a t i o n - g a t h e r i n g

a u t h o r i t y t o EPA.

It

a l l o w s EPA a c c e s s t o d a t a a b o u t t h e chemical i n d u s t r y ' s o p e r a t i o n s , p r o d u c t i o n

p r o c e s s e s , and m a r k e t s .

S e c t i o n 8 a l s o p r o v i d e s a u t h o r i t y f o r EPA t o r e q u i r e

c l o s e m o n i t o r i n g o f p r o d u c t i o n and e x p o s u r e t o t h e v a r i e t y of c h e m i c a l s used

i n t h e w o r k p l a c e o r consumer u s e s .

EPAts i n i t i a l r e q u i r e m e n t was t o e s t a b l i s h t h e "Inventory"--a

c o m p i l a t i o n o f a l l e x i s t i n g c h e m i c a l s i n commerce a s o f 1979.

a base a g a i n s t

This established

t o compare new chemical n o t i c e s ; a 1 1 c h e m i c a l s n o t on t h e

I n v e n t o r y a r e by d e f i n i t i o n new.

identified

first-time

Approximately 55,000 c h e m i c a l s w e r e

.

Other p r o v i s i o n s of S e c t i o n 8 provide t h e a u t h o r i t y t o g a t h e r production

volume d a t a , a s w e l l a s any h e a l t h and s a f e t y d a t a d e v e l o p e d by o r known t o

c h e m i c a l p r o d u c e r s and p r o c e s s o r s .

EPA c a n a l s o r e q u i r e t h a t employee h e a l t h

records a n d / o r a l l e g e d adverse h e a l t h e f f e c t s d a t a be k e p t f o r a period

of 30 y e a r s .

OTHER SECTIONS

Imminent Hazards

S e c t i o n 7 p r o v i d e s EPA a u t h o r i t y t o t a k e emergency a c t i o n s immediately

a g a i n s t a c h e m i c a l s u b s t a n c e o r m i x t u r e which p r e s e n t s a n imminent and u n r e a sonable r i s k of s e r i o u s widespread i n j u r y t o h e a l t h o r t h e environment.

R e l a t i o n t o O t h e r Laws

S e c t i o n 9 a l L m s EPA t o r e f e r c a s e s o f c h e m i c a l r i s k t o o t h e r F e d e r a l

a g e n c i e s i f t h e o t h e r agency h a s a u t h o r i t y t o p r e v e n t o r r e d u c e t h e r i s k .

s t a t u t e s under EPA's

For

j u r i s d i c t i o n , TSCA g i v e s t h e A d m i n i s t r a t o r d i s c r e t i o n t o

d e c i d e i f a r i s k c a n b e s t b e h a n d l e d by TSCA.

Chemical C a t e g o r i e s

S e c t i o n 26 a l l o w s EPA t o impose r e g u l a t o r y c o n t r o l s on c a t e g o r i e s of

c h e m i c a l , r a t h e r t h a n on a case-by-case

basis.

However, EPA c a n n o t r e g u l a t e a

group s o l e l y on t h e b a s i s o f t h e i r b e i n g new c h e m i c a l s u b s t a n c e s .

Miscellaneous

TSCA i n c l u d e s o t h e r p r o v i s i o n s common t o o t h e r e n v i r o n m e n t a l s t a t u t e s .

These i n c l u d e p r o v i s i o n s r e g a r d i n g enforcement o f t h e A c t , imposing p e n a l t i e s ,

j u d i c i a l r e v i e w , c i t i z e n p e t i t i o n s , r e s e a r c h and d e v e l o p m e n t , s t a t e programs,

and p r o t e c t i o n o f employees who a s s i s t i n c a r r y i n g o u t t h e p r o v i s i o n s o f t h e

Act ( i . e . ,

"whistle-blowers").

NOISE CONTROL ACT OF 1972

--.

With enactment of t h e Noise C o n t r o l Act o f 1972 ( P . L .

92-5741,

t h e EPA

was g i v e n t h e b a s i c a u t h o r i t y t o c o n t r o l n o i s e p o l l u t i o n and was d i r e c t e d t o

t a k e a comprehensive a p p r o a c h .

T h i s L e g i s l a t i o n a u t h o r i z e d EPA t o e s t a b l i s h

n o i s e e m i s s i o n s t a n d a r d s f o r p r o d u c t s now d i s t r i b u t e d i n commerce, t o p r o v i d e

f o r t h e c o o r d i n a t i o n o f F e d e r a l r e s e a r c h on n o i s e c o n t r o l , and t o r e q u i r e

manufacturers of products e m i t t i n g n o i s e c a p a b l e of a d v e r s e l y a f f e c t i n g t h e

public health o r welfare t o l a b e l t h e i r products' noise c h a r a c t e r i s t i c s .

The Q u i e t Communities Act of 1978 ( P . L .

95-608)

e x t e n d e d and made m i n o r

amendments t o t h e A c t .

-

AIRCRAFT NOISE

A p r i m a r y f o c u s of n o i s e c o n t r o l h a s b e e n on ~ r o t e c t i n gt h e p u b l i c h e a l t h

and w e l f a r e from a i r c r a f t n o i s e and a i r c r a f t o p e r a t i o n s .

EPA's r o l e u n d e r t h i s

l e g i s l a t i o n i s t o c o n d u c t comprehensive s t u d i e s o f t h e a i r c r a f t n o i s e problem

and t o p r o p o s e r e g u l a t i o n s and m e a s u r e s t o a b a t e n o i s e .

These p r o p o s a l s a r e

reviewed by t h e F e d e r a l A v i a t i o n A u t h o r i t y , w h i c h h a s t h e a u t h o r i t y t o

a c c e p t , m o d i f y , o r r e j e c t EPA's p r o p o s a l s .

for issuing a i r c r a f t noise regulations.

The FAA i s u l t i m a t e l y r e s p o n s i b l e

The Act p r o v i d e s f o r j u d i c i a l r e v i e w

o f a l l FAA d e c i s i o n s , and u n d e r t h e c i t i z e n s u i t p r o v i s i o n s o f t h e A c t , any

i n d i v i d u a l c a n b r i n g s u i t a g a i n s t t h e FAA o r EPA A d m i n i s t r a t o r s f o r f a i l u r e

t o p e r f o r m any n o n d i s c r e t i o n a r y a c t o r d u t y .

NOISE FROM COMMERCIAL PRODUCTS

The Act a u t h o r i z e s EPA t o p r e s c r i b e s t a n d a r d s l i m i t i n g n o i s e e m i s s i o n s

f o r any p r o d u c t o r c l a s s o f p r o d u c t s i d e n t i f i e d a s a major s o u r c e o f n o i s e

i n the following c a t e g o r i e s :

c o n s t r u c t i o n equipment, t r a n s p o r t a t i o n v e h i c l e s

( i n c l u d i n g r e c r e a t i o n a l v e h i c l e s ) , a n y motor o r e n g i n e , and e l e c t r i c a l o r

e l e c t r o n i c equipment,

The EPA was f u r t h e r d i r e c t e d t o promulgate r e g u l a t i o n s

f o r s u r f a c e c a r r i e r s engaged i n i n t e r s t a t e commerce, i n c l u d i n g r a i l r o a d s ,

t r u c k s and b u s e s .

P e n a l t i e s o f up t o 1 y e a r imprisonment and a $25,000 f i n e a r e p r o v i d e d

f o r p e r s o n s c o n v i c t e d of removing n o i s e r e d u c t i o n d e v i c e s from p r o d u c t s t h a t

have complied w i t h n o i s e e m i s s i o n r e g u l a t i o n s o r f o r removing n o i s e c h a r a c t e r i s t i c s l a b e l s from p r o d u c t s b e f o r e t h e i r s a l e t o t h e u l t i m a t e p u r c h a s e r .

C i v i l p e n a l t i e s w e r e added i n 1978.

O t h e r p r o v i s i o n s of the l e g i s l a t i o n a u t h o r i z e t h e EPA t o r e s e a r c h t h e

p s y c h o l o g i c a l and p h y e i o l o g i c a l e f f e c t s of n o i s e on human b e i n g s , a n i m a l s ,

and p r o p e r t y ; p r o v i d e t e c h n i c a l a s s i s t a n c e t o S t a t e and l o c a l governments

t o f a c i l i t a t e development and enforcement o f ambient n o i s e s t a n d a r d s ; and

d i s s e m i n a t e p u b l i c i n f o r m a t i o n on e f f e c t s , a c c e p t a b l e l e v e l s , and t e c h n i q u e s

f o r t h e measurements and c o n t r o l o f n o i s e .

ACTIONS DURING 1981-82

The Reagan A d m i n i s t r a t i o n d e c i d e d t o t e r m i n a t e the F e d e r a l n o i s e c o n t r o l

program.

I n t h e judgment o f t h e A d m i n i s t r a t i o n , n o i s e c o n t r o l i s one o f t h e

a r e a s which p r o p e r l y s h o u l d b e r e g u l a t e d by S t a t e and l o c a l governments

i n s t e a d o f t h e F e d e r a l Government.

The proposed FY82 budget f o r EPA's O f f i c e

of Noise Abatement and C o n t r o l was t h e r e f o r e c u t from $13 m i l l i o n proposed

by t h e C a r t e r A d m i n i s t r a t i o n , t o $2.2 m i l l i o n s u g g e s t e d by t h e Reagan

Administration.

The r e m a i n i n g f u n d i n g was i n t e n d e d t o b e u s e d f o r a n o r d e r l y

t e r m i n a t i o n of t h e program, and f u n d i n g f o r f u t u r e y e a r s was p r o j e c t e d a t z e r o

I n t h e a b s e n c e of new a u t h o r i z a t i o n b i l l s , t h e n o i s e c o n t r o l program

underwent a g r a d u a l p h a s e d m n d u r i n g 1981 and 1982, f i n a l l y c e a s i n g t o e x i s t

a t t h e end o f f i s c a l y e a r 1982, on September 3 0 , 1982.

With t h e s h u t d o w n o f

t h e O f f i c e o f Noise Abatement and C o n t r o l , EPA's r e m a i n i n g r e s p o n s i b i l i t i e s

i n t h i s a r e a a r e b e i n g h a n d l e d by t h e A s s i s t a n t A d m i n i s t r a t o r f o r A i r , ~ o i s e ,

and R a d i a t i o n .

The Noise C o n t r o l Act h a s n o t b e e n r e p e a l e d , and some o f t h e r e g u l a t i o n s

i s s u e d u n d e r i t s a u t h o r i t y remain i n e f f e c t .

commercial p r o d u c t s a r e i n t h r e e a r e a s :

Remaining n o i s e r e g u l a t i o n s on

(1) products; these include portable

a i r c o m p r e s s o r s , t r u c k mounted s o l i d w a s t e c o m p a c t o r s ( i . e . ,

garbage t r u c k s ) ,

m o t o r c y c l e s , and medium and heavy t r u c k s , ( 2 ) h e a r i n g p r o t e c t o r s ; t h e s e must

b e l a b e l l e d a s t o t h e d e g r e e o f p r o t e c t i o n t h e y p r o v i d e , and ( 3 ) i n t e r s t a t e

t r a n s p o r t a t i o n ; t h i s i n c l u d e s r a i l r o a d s and i n t e r s t a t e m o t o r c a r r i e r s ( t r u c k s ) .

These r e g u l a t i o n s may b e e n f o r c e d by S t a t e and l o c a l governments i f t h e y

have a law o r o r d i n a n c e i d e n t i c a l t o t h e F e d e r a l r e g u l a t i o n s .

On t h e F e d e r a l

l e v e l , t h e EPA h a s e n f o r c e m e n t r e s p o n s i b i l i t i e s c o v e r i n g t h e f i r s t two a r e a s ,

w h i l e t h e Department of T r a n s p o r t a t i o n r e t a i n s t h e F e d e r a l e n f o r c e m e n t r e s p o n s i b i l i t y f o r t h e t h i r d a r e a , r a i l r o a d s and i n t e r s t a t e m o t o r c a r r i e r s .

ENVIRONMENTAL RESEARCH AND DEVELOPMENT

D e s c r i b i n g EPA's s t a t u t o r y mandate f o r r e s e a r c h and development (R&D)

i s n o t s t r a i g h t f o r w a r d , b o t h b e c a u s e R&D i s a b r o a d s u b j e c t and b e c a u s e t h e

a g e n c y ' s R&D a u t h o r i t i e s grew p i e c e m e a l a s p a r t s oE many e n v i r o n m e n t a l prot e c t i o n l a w s , e n a c t e d and amended o v e r t h e y e a r s .

U s u a l l y , R&D i s d e f i n e d

q u i t e b r o a d l y , t o i n c l u d e b a s i c and a p p l i e d r e s e a r c h a s w e l l a s development

and d e m o n s t r a t i o n o f t e c h n o l o g i e s , p l u s m o n i t o r i n g and d i v e r s e s p e c i a l s t u d i e s .

EPA's a u t h o r i t i e s f o r t h e s e a c t i v i t i e s d e r i v e from v a r i o u s p r o v i s i o n s i n a t

l e a s t 1 3 laws :

-- t h e C l e a n A i r A c t , e s p e c i a l l y s e c t i o n s 1 0 3 , 1 0 4 ,

1 5 3 , and 319;

-- t h e F e d e r a l Water P o l l u t i o n C o n t r o l A c t , e s p e c i a l l y

T i t l e I , s e c t i o n s 104-116;

-- t h e S a f e D r i n k i n g Water A c t , e s p e c i a l l y s e c t i o n s 1442

and 1444;

-- t h e Marine P r o t e c t i o n , R e s e a r c h and S a n c t u a r i e s Act

(Ocean Dumping A c t ) ;

-- t h e S o l i d Waste D i s p o s a l A c t / R e s o u r c e C o n s e r v a t i o n and

Recovery A c t , S u b t i t l e H , s e c t i o n s 8001-8007;

-- t h e F e d e r a l I n s e c t i c i d e , F u n g i c i d e , and R o d e n t i c i d e A c t ,

s e c t i o n 20;

-- t h e P e s t i c i d e R e s e a r c h A c t ;

-- t h e T o x i c S u b s t a n c e s C o n t r o l A c t , e s p e c i a l l y s e c t i o n 1 0 ;

-- t h e Noise C o n t r o l A c t , s e c t i o n ?4:

-- t h e P u b l i c H e a l t h S e r v i c e A c t ;

-- t h e N a t i o n a l Environmental P o l i c y A c t , s e c t i o n ZO4(5) ;

-- t h e Comprehensive Environmental Response, Compensation,

and L i a b i l i t y Act o f 1980 ( S u p e r f u n d ) ; and

-- t h e Energy S e c u r i t y Act (Acid r a i n r e s e a r c h program),

T i t l e V'II.

I n some c a s e s , t h e s e s t a t u t e s g i v e EPA g e n e r a l R&D a u t h o r i t i e s .

In o t h e r

c a s e s , t h e y s p e c i f y i n c o n s i d e r a b l e d e t a i l c e r t a i n p r o j e c t s EPA i s t o c a r r y

out.

Some of t h e a u t h o r i z a t i o n s a r e f o r c o n t i n u i n g programs, o t h e r s a r e f o r

one-time s t u d i e s .

O r i g i n a l l y , many of t h e s e s t a t u t e s c o n t a i n e d s e p a r a t e

a p p r o p r i a t i o n a u t h o r i z a t i o n s f o r funding r e s e a r c h .

A t l e a s t i n t h e o r y some o r d e r and review was imposed on t h e s e d i v e r s e

a u t h o r i t i e s by t h e requirement--enacted

i n 1976 ( P . L .

94-475)--that

R&D be s p e c i f i c a l l y a u t h o r i z e d s e p a r a t e l y on a n a n n u a l b a s i s .

EPA's

This require-

ment f o l l o w e d t h e d e c i s i o n of t h e House t o c o n s o l i d a t e j u r i s d i c t i o n f o r

e n v i r o n m e n t a l R&D i n t h e S c i e n c e and Technology Committee.

However, Congress

f a i l e d t o e n a c t a u t h o r i z a t i o n s f o r FY1977 and FY1982, and t h e a u t h o r i z a t i o n s

f o r FY1983 and FY1984 v e r e v e t o e d s u c c e s s f u l l y .

The l a c k of a u t h o r i z a t i o n

meant t h a t i n t h e House, b i l l s a p p r o p r i a t i n g f u n d s f o r t h o s e programs v e r e

p o t e n t i a l l y open t o o b j e c t i o n a s n o t complying w i t h t h e r u l e t h a t money

c a n n o t be a p p r o p r i a t e d w i t h o u t p r i o r a u t h o r i z a t i o n .

But t h i s r u l e c a n b e

w a i v e d , and EPA's a p p r o p r i a t i o n s , i n c l u d i n g funds f o r R&D, h a v e been approved

each year--although

t h e funds a p p r o p r i a t e d have t y p i c a l l y been l e s s t h a n t h e

p r e v i o u s sums a u t h o r i z e d .

The EPA R&D a u t h o r i z i n g b i l l s t h a t have been e n a c t e d ( P . L . 94-475,

P.L.

95-155,

P.L.

95-477,

P.L.

96-299,

and P . Z .

96-569) b o t h ( 1 ) a u t h o r i z e

t h e l e v e l and a l l o c a t i o n of funds f o r t h e e n v i r o n m e n t a l media R&D programs,

(2) also address a number of R&D policy issues, especially (a) environmental

RhD planning, ( b ) coordination of environmental R&D among ~ederalagencies,

and ( c ) responsibility for conducting long-term, basic research.

The Environmental Research, Development, and Demonstration Authorization

Act of 1981--the last one to have been signed into law--authorized to be

appropriated to EPA for environmental research the sum of $364.70 million,

divided as follak~s:

-- under the Clean Air Act, $70,167,000;

-- under the Clean Water Act, $64,022,000;

-- under the Safe Drinking Water Act, $27,447,000;

-- under the Solid Waste Disposal Act, $26,446,000;

-- under the Federal ~nsecticide,Fungicide, and

Rodenticide Act, $9,435,000;

-- for radiation activities under the Public Health

Service Act, $3,181,000;

-- for interdisciplinary activities, $22,845,000;

-- under the Toxic Substances Control Act, $36,895,000;

-- for energy activities, $107,599,000; and

-- for program management by EPA, $4,666,000.

(AS a cost-cutting measure, the Act included a provision superimposing an

across-the-board authorization cap equal to $8 million less than the sum

of the specified authorizations for programs under the Act.)

In addition, the Act broke d m n the authorizations for many of the

programs.

For example, the $70,167,000 authorized under the Clean Air Act

was divided into three categories;

$45,243,000 for Health and Ecological

~ffects;$4,099,000 for Industrial Processes; and $20,825,000 for Monitoring

and Technical Support.

Other breakdmns specified certain projects.

For

example, of t h e S a f e D r i n k i n g Water Act f u n d s , $4 m i l l i o n may be o b l i g a t e d

and expended on groundwater r e s e a r c h .

F i n a l l y , t h e Act imposed l i m i t a t i o n s on EPA's a b i l i t y t o t r a n s f e r funds

from one c a t e g o r y t o a n o t h e r .

While t h e a u t h o r i z a t i o n s r e f l e c t e d C o n g r e s s ' p o s i t i o n on a number of

R&D p o l i c y i s s u e s - - f o r

research--the

example, t h e importance o f t h e a g e n c y ' s e n e r g y

A c t s a l s o have i n c l u d e d e x p l i c i t p o l i c y d i r e c t i o n s .

On r e s e a r c h p l a n n i n g , P.L.

94-475 r e q u i r e d EPA t o p r e p a r e each y e a r a

comprehensive 5-year e n v i r o n m e n t a l R&D p l a n , t o be s u b m i t t e d t o Congress no

l a t e r t h a n two weeks a f t e r t h e P r e s i d e n t s u b m i t s h i s b u d g e t .

P.L.

95-155

added t h e r e q u i r e m e n t t h a t t h e 5-year p l a n i n c l u d e p r o j e c t i o n s f o r no-growth,

m o d e r a t e - g r m 7 t h , and high-grcwth b u d g e t s .

On r e s e a r c h c o o r d i n a t i o n , P.L.

95-155 a s s i g n e d EPA t h e l e a d r o l e i n

c o o r d i n a t i n g a l l F e d e r a l e n v i r o n m e n t a l R&D.

The same a c t a l s o r e q u i r e d t h e

Council on Environmental Q u a l i t y t o p r e p a r e a s t u d y o f t h e i s s u e .

Also, t h e

a c t d i r e c t e d EPA t o s t u d y and r e p o r t on i t s i n t e r n a l c o o r d i n a t i o n of r e s e a r c h

w i t h i t s r e g u l a t o r y program.

On b a s i c r e s e a r c h , t h e Congress h a s r e p e a t e d l y d i r e c t e d t h e agency t o

m a i n t a i n d i s c r e t e programs o f c o n t i n u i n g , long-term r e s e a r c h w i t h i n each R&D

a c t i v i t y ; and t o d e d i c a t e a t l e a s t 15 p e r c e n t o f a p p r o p r i a t e d funds f o r e a c h

a c t i v i t y t o s u c h long-term r e s e a r c h .

I n f a c t , t h e vetoed b i l l a u t h o r i z i n g

funds f o r FYI982 and FY1983 would have r e q u i r e d EPA t o d e d i c a t e 20 p e r c e n t of

i t s R&D f u n d s t o long-term r e s e a r c h .

A l s o , i n P.L.

95-477 and P.L. 96-229,

Congress e x p l i c i t l y f o r b a d e t h e

A d m i n i s t r a t i o n from c a r r y i n g o u t a proposed t r a n s f e r s f e n e r g y - r e l a t e d

r e s e a r c h c o n d u c t e d by EPA t o t h e Department of Energy.

To ensure the scientific quality of EPA activities, P.L. 95-155 created

within the agency a Science Advisory Board.

The Board has responsibilities

for reviewing agency activities, including specifically the preparation of

the 5-year environmental R&D plan.

In addition, from time to time these enactments have specified funds for

research areas that EPA has not proposed to undertake.

For example, P.L. 95-

477 specified $15 million for demonstrating wastewater reuse.

While these annual authorizations, when enacted, best represent the

overall picture of statutory authority for environmental R&D, the provisions

of the various environmental protection statutes also remain in effect.

In fact, amendments to these statutes have included new RbD provisions, though

usually without specific funding level authorizations. Ultimately, then,

EPA's current and continuing authority for conducting R&D derives from a

combination of authorizations in its basic environmental protection statutes,

requirements and precedents arising from the environmental R&D authorization

laws, and the actual levels of funds provided in EPA's annual appropriations

bill.

NATIONAL ENVIRONMENTAL POLICY ACT

-I. STATUTORY POLICY AND PROCEDURES

The National Environmental Policy Act (NEPA) was enacted as Public Law

91-190

on January 1, 1970.

The basic purposes of NEPA are spelled out in Section 2 as folla~s:

-- 11 to declare a national policy which will encourage

productive and enjoyable harmony between man and

his environment;

-- 11 to promote efforts which will prevent or eliminate

damage to the environment and biosphere and stimulate

the health and welfare of man;

-- "to enrich the understanding of the ecological systems

and natural resources important to the Nation; and

-- "and to establish a Council on Environmental Quality."

These purposes are followed by a "Declaration of National Environmental

Policy" in Title I which commits the Federal government to work with other

levels of government and other groups in order to improve environmental

conditions, while Title I1 creates the Council on Environmental Quality in

the Executive Office of the President.

POLICY GOALS

In order to carry out that overall policy statement, the Act further made

it the "continuing responsibility" of the Federal Government to take "all practicable" steps to reach a number of so-called substantive goals that embodied

nationwide improvements in environmental quality.

environmental responsibility is--

Specifically, the Federal

"...

t o u s e a l l p r a c t i c a b l e means, c o n s i s t e n t w i t h o t h e r e s s e n t i a l

t h a t t h e N a t i o n may-c o n s i d e r a t i o n s of n a t i o n a l p o l i c y ,

...

--

f u l f i l l t h e r e s p o n s i b i l i t i e s of e a c h g e n e r a t i o n a s

t r u s t e e o f t h e environment f o r s u c c e e d i n g g e n e r a t i o n s ;

11

-- a s s u r e , s a f e , h e a l t h f u l , p r o d u c t i v e ... s u r r o u n d i n g s ;

-- a t t a i n ... b e n e f i c i a l u s e s o f t h e environment w i t h o u t

degradation, r i s k t o health or safety, or other

u n d e s i r a b l e and u n i n t e n d e d c o n s e q u e n c e s ;

-- p r e s e r v e i m p o r t a n t ... a s p e c t s of o u r n a t i o n a l h e r i t a g e ,

and m a i n t a i n , w h e r e v e r p o s s i b l e , a n environment

;

which s u p p o r t s d i v e r s i t y

. ..

-- a c h i e v e a b a l a n c e between p o p u l a t i o n and r e s o u r c e

use

.. .; and

-- enhance ... renewable r e s o u r c e s and ... r e c y c l i n g o f

depletable resources.

F u r t h e r , i n S e c t i o n 1 0 1 ( c ) t h e Congress a d o p t e d language r e c o g n i z i n g t h a t

I1

each p e r s o n s h o u l d e n j o y a h e a l t h f u l environment and t h a t each p e r s o n h a s a

r e s p o n s i b i l i t y t o c o n t r i b u t e t o [ i t s ] p r e s e r v a t i o n and enhancement

....It,

ACTION-FORCING PROCEDURES

S e c t i o n 102 of NEPA s t a t e s t h a t t h e Congress " a u t h o r i z e s and d i r e c t s

t h a t , t o the f u l l e s t extent possible:

" ( 1 ) t h e p o l i c i e s , r e g u l a t i o n s , and p u b l i c l a w s of t h e

United S t a t e s s h a l l be i n t e r p r e t e d and a d m i n i s t e r e d

i n accordance w i t h t h e p o l i c i e s s e t f o r t h i n t h i s

A c t ; and

" ( 2 ) a l l a g e n c i e s o f t h e F e d e r a l Government s h a l l

[ i n c o r p o r a t e t h e p o l i c y and g o a l s by u t i l i z i n g new

methods f o r c o n s i d e r i n g e n v i r o n m e n t a l i n f ~ r m a t i o n

and v a l u e s ] .

Those d i r e c t i v e s t o d e v e l o p i n f o r m a t i o n , methods and p r o c e d u r e s ; t o

make d e t a i l e d p u b l i c d i s c l o s u r e of e n v i r o n m e n t a l e f f e c t s ; and t o p a r t i c i p a t e

i n a p p r o p r i a t e l o c a l , n a t i o n a l and i n t e r n a t i o n g l a c t i v i t i e s a r e r e q u i r e d t o

b e " u s e f u l i n r e s t o r i n g , m a i n t a i n i n g , and e n h a n c i n g t h e q u a l i t y o f t h e

env i r oamen t

.

'I

Specifically, agencies' decisions must reflect these new dimensions:

. . . a systematic interdisciplinary approach . . .;

" ( B ) develop ... procedures [to ensure consideration of]

"(A)

...

unquantified environmpntal amenities and values

along with economic and technical considerations; and

...

"(C) include in [all]

proposals for legislation and

other major Federal actions significantly affecting the

quality of the human environment, a detailed statement [of

- by the responsible official

environmental impact]*/

...;

...

"(Dl

under a program of grants to States

prepared by a State agency

can] be legally

...

... [EIS'S

....**

-/

...

...

"(El study

alternatives to

any proposal which

involves unresolved conflicts concerning alternative

uses of available resources;

...

.. .

lend appropriate support

to maximize

international cooperation in anticipating and preventing a decline in the quality of mankind's world

environment;"

"(F)

11. ENVIRONMENTAL PROTECTION AGENCY FUNCTIONS UNDER NEPA

Under NEPA, each agency is responsible for reviewing and commenting on

other agencies' ",sS's(as to the commentir:g agency's expertise), in order to

assess their adequacy and to coordinate interagency decision making.

The EPA

-

has developed procedures for preparing its review and public comments on all

?I The statement must analyze the environmental impact of the proposed

action; any adverse environmental effects which cannot be avoided; alternatives to the proposed action; the relationship between local short-term uses

of man's environment and

long-term productivity; and any irreversible

and irretrievable commitments of resources

involved in the proposed

action

Prior to taking an action, the responsible Federal official is required

to consult any other Federal agency having jurisdiction or special expertise

on the environwntal impacts, and to make the "statement and the comments and

available to

views of the apprnpriate Federal, State, and local agencies

the President, the Council on Environmental Quality and to the public".

...

....

...

...

impact statements under additional authority contained in section 309 of the

Clean Air Act; the standardized procedures for E I S preparatio; and review

which apply government-wide were issued by the Council on Environmental Quality

on November 29, 1978 (43 FR 55978, or 40 CFR 1500).

Legislation has substantially limited EPA's own impact statement

preparation.

The Federal Water Pollution Control Act Amendments of 1972

(P.L. 92-500) specified that statements vould be required only for wastewater

treatment construction grants and for the issuance of permits for pollutants

from a new source. As the States assume the responsibilities for these EPA

water pollution control programs as the law provides, even the two actions

subject to EIS requirements are no longer Federal decisions, and NEPA is no

longer applicable. These Amendments also sanction the use of EPA's water

quality standards by other Federal agencies for purposes of compliance with

NEPA, thereby overturning a holding of the Federal appeals court--in Calvert

Cliffs' Coordinati,ng Committee v. Atomis Energy Commission, 449 F.2d 1109

(D.C. Cir. 1971)-Thich

would have required water quality determinations by

the Atomic Energy Commission.

Further, the Energy Supply and Environmental

Coordination Act of 1974 (P.L. 93-319) provided that no impact statements

would be required for any actions taken by the EPA under the Clean Air Act.

The following eycerpt from EPA's testimony before the House Merchant

Marine and Fisheries Committee on February 2, 1984, outlines the agency's

current role in the NEPA process:

"The Office of Federal Activities

. .., is responsible for working with

other Federal agencies to assure that they carry out their activities in an

environmentally sound manner; responsibilities of the office include the

Environmental Impact Statement review program, [and] NEPA compliance for EPA

Programs .

. ..

11

are:

... EPA h a s NEPA r e s p o n s i b i l i t y i n f o u r programs o r a c t i v i t i e s .

These

c o n s t r u c t i o n g r a n t s , new s o u r c e NPDES ~ e r m i t s ,r e s e a r c h and development

programs, and f a c i l i t y s u p p o r t a c t i v i t i e s .

As p a r t o f t h e 1974 p o l i c y on

NEPA c o m p l i a n c e , EPA a l s o committed t o p r e p a r e e n v i r o n m e n t a l impact s t a t e ments on s e l e c t e d s i g n i f i c a n t r e g u l a t o r y a c t i o n s , a l t h o u g h n o t r e q u i r e d t o

do s o by l a w .

The Agency b e l i e v e d t h a t t h e p r e p a r a t i o n o f E I S ' S would have

b e n e f i c i a l e f f e c t s on t h e s e l e c t e d a c t i o n s and e s t a b l i s h e d p r o c e d u r e s f o r

implementing t h e p o l i c y .

These s o - c a l l e d v o l u n t a r y EIS p r o c e d u r e s w e r e

p u b l i s h e d i n t h e F e d e r a l R e g i s t e r i n O c t o b e r 1974.

They c o v e r s p e c i f i e d

a c t i o n s u n d e r t h e Clean A i r A c t , t h e N o i s e C o n t r o l A c t , t h e Atomic Energy

A c t , t h e F e d e r a l I n s e c t i c i d e , R o d e n t i c i d e , and F u n g i c i d e Act , and t h e Marine

P r o t e c t i o n , R e s e a r c h , and S a n c t u a r i e s A c t .

I1

The second major r e s p o n s i b i l i t y i s EPA's management o f t h e f i l i n g

p r o c e s s and r e c o r d s f o r a l l f e d e r a l E I S ' s .

T h i s was o r i g i n a l l y a CEQ func-

t i o n , b u t was t r a n s f e r r e d t o EPA [ R e o r g a n i z a t i o n P l a n No. 1 o f 19771

...

. .. S e c t i o n 309 o f t h e C l e a n A i r Act and t h e CEQ r e g u l a t i o n s r e q u i r e s

EPA t o r e v i e w , and comment i n w r i t i n g on a l l m a j o r F e d e r a l a c t i o n s , ... pro[~lhird,

posed r e g u l a t i o n s and A d m i n i s t r a t i o n p r o p o s a l s f o r l e g i s l a t i o n . "