# Summaries of Federal Environmental Laws Administered by the Environmental Protection Agency

> Briefs, arguments, decisions, and more.

URL: https://www.frixlaw.com/law-library/documents/crs%3A84-44ENR

## Record

- **Collection:** Congressional research report
- **Document type:** CRS Report
- **Published:** March 1, 1984
- **Citation:** 84-44ENR

## Text

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

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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

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Source: Frix Law Library, https://www.frixlaw.com/law-library/documents/crs%3A84-44ENR. Public record. Not legal advice.