96-11328. Amendment to Requirements for Authorized State Permit Programs Under Section 402 of the Clean Water Act  

  • [Federal Register Volume 61, Number 90 (Wednesday, May 8, 1996)]
    [Rules and Regulations]
    [Pages 20972-20980]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 96-11328]
    
    
    
    
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    _______________________________________________________________________
    
    Part IV
    
    
    
    
    
    Environmental Protection Agency
    
    
    
    
    
    _______________________________________________________________________
    
    
    
    40 CFR Part 123
    
    
    
    Amendment to Requirements for Authorized State Permit Programs Under 
    Section 402 of the Clean Water Act; Final Rule
    
    Federal Register / Vol. 61, No. 90 / Wednesday, May 8, 1996 / Rules 
    and Regulations
    
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    ENVIRONMENTAL PROTECTION AGENCY
    
    40 CFR Part 123
    
    [FRL-5500-9]
    RIN 2040-AC43
    
    
    Amendment to Requirements for Authorized State Permit Programs 
    Under Section 402 of the Clean Water Act
    
    AGENCY: Environmental Protection Agency (EPA).
    
    ACTION: Final rule.
    
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    SUMMARY: EPA is amending the regulations concerning the minimum 
    requirements for federally authorized State permitting programs under 
    Section 402 of the Clean Water Act. This amendment will explicitly 
    require that all States that administer or seek to administer a program 
    under this part must provide an opportunity for judicial review in 
    State Court of final permit decisions (including permit approvals and 
    denials) that is sufficient to provide for, encourage, and assist 
    public participation in the permitting process. A State will meet this 
    standard where State law allows an opportunity for judicial review that 
    is equivalent to that available to obtain judicial review in federal 
    court of federally-issued NPDES permits. A State will not meet this 
    standard if it narrowly restricts the class of persons who may 
    challenge the approval or denial of State-issued permits.
        This rule is being issued because EPA has become aware of instances 
    in which citizens are barred from challenging State-issued permits 
    because of restrictive standing requirements in State law. The current 
    regulations setting minimum requirements for State 402 permit programs 
    do not explicitly address this problem. EPA believes this is a gap in 
    the regulations setting minimum requirements for State 402 programs 
    that needs to be addressed.
        Today's rule is intended to ensure effective and meaningful public 
    participation in the permit issuance process by establishing a minimum 
    level of public participation among State water pollution control 
    programs. When citizens have the opportunity to challenge executive 
    agency decisions in court, their ability to influence permitting 
    decisions through other required elements of public participation, such 
    as public comments and public hearings on proposed permits, is 
    enhanced. This rule will promote effective and meaningful public 
    participation and will minimize the possibility of unfair and 
    inconsistent treatment of similarly situated people potentially 
    affected by State permit decisions.
        This requirement does not apply to Indian Tribes. EPA will decide 
    at a later time whether it should be extended to Tribes.
    
    EFFECTIVE DATE: This rule is effective on June 7, 1996. Under EPA's 
    State 402 program rules, States will have up to two years to adopt 
    legislative changes, if necessary, to meet this requirement and 
    maintain federal program authorization.
    
    FOR FURTHER INFORMATION CONTACT: Robert Klepp, Office of Wastewater 
    Management (OWM), Permits Division (4203), Environmental Protection 
    Agency, 401 M Street, S.W., Washington, D.C. 20460, (202) 260-5805.
    
    SUPPLEMENTARY INFORMATION:
    
    Regulated Entities
    
        Entities potentially regulated by this action are authorized State 
    programs.
    
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                                                    Examples of regulated   
                     Category                             entities          
    ------------------------------------------------------------------------
    State Government..........................  State NPDES Permit Issuing  
                                                 Authorities.               
    ------------------------------------------------------------------------
    
        This table is not intended to be exhaustive, but rather provides a 
    guide for readers regarding entities likely to be regulated by this 
    action. This table lists the types of entities that EPA is now aware 
    could potentially be regulated by this action. Other types of entities 
    not listed in the table could also be regulated. To determine whether 
    your organization is likely to be regulated by this action, you should 
    carefully read the applicability language of today's rule. If you have 
    any questions regarding the applicability of this action to a 
    particular entity, consult the person listed in the preceding FOR 
    FURTHER INFORMATION CONTACT section.
        Information in this preamble is organized as follows:
    
    I. Summary and Explanation of Today's Action
        1. Background
        2. Rationale and Authority
        a. Restrictive Standing Requirements In States
        b. Policy Concerns With Restrictive Standing Provisions
        c. Legal Authority
        3. Regulatory Language
        4. Exhaustion of Administrative Remedies
        5. Consideration of Alternatives
        6. Time Period for Compliance
    II. Summary of Response to Comments
        1. EPA Authority to Require Standing
        2. Judicial Review is Distinct from Public Participation
        3. Rule would Impermissibly Affect State Sovereignty
        4. Potential Conflicts with the Tenth Amendment
        5. The Potential for Waste and Abuse of Judicial Resources
        6. Suggested Revisions
        7. Time Frame for Compliance
        8. Indian Tribes
        9. Virginia-specific Issues
        10. Impact of the Rule
        11. Support for the Rule
    III. Administrative Requirements
        1. Compliance with Executive Order 12866
        2. Unfunded Mandates Reform Act and Compliance with Executive 
    Order 12875
        3. Paperwork Reduction Act
        4. Regulatory Flexibility Act
    
    I. Summary and Explanation of Today's Action
    
    1. Background
    
        Congress enacted the Clean Water Act, 33 U.S.C. 1251 et seq. 
    (``CWA'' or ``the Act''), ``to restore and maintain the chemical, 
    physical, and biological integrity of the Nation's waters.'' Section 
    101(a), 33 U.S.C. 1251(a). To achieve this objective, the Act 
    authorizes EPA, or a State approved by EPA, to issue permits 
    controlling the discharge of pollutants to navigable waters. Section 
    402(a)(1), 33 U.S.C. 1342(a)(1). A State that wishes to administer its 
    own permit program for discharges of pollutants, other than dredged or 
    fill material, to navigable waters may submit a description of the 
    program it proposes to administer to EPA for approval according to 
    criteria set forth in the statute. Section 402(b), 33 U.S.C. 1342(b).
        EPA's regulations at 40 CFR Part 123 establish minimum requirements 
    for federally authorized State permit programs under Sec. 402 of the 
    CWA. Today, EPA is adding language to Part 123 that makes it clear that 
    States that administer or seek to administer authorized 402 permitting 
    programs must provide an opportunity for judicial review in State court 
    of the final approval or denial of permits by the State that is 
    sufficient to provide for, encourage, and assist public participation 
    in the permitting process. A State will meet this standard if State law 
    allows an opportunity for judicial review that is the same as that 
    available to obtain judicial review of federally-issued permits in 
    federal court (see Sec. 509 of the Clean Water Act.) A State will not 
    meet this standard if it narrowly restricts the class of persons who 
    may challenge the approval or denial of permits (for example, if only 
    the permittee can obtain judicial review, or if persons must 
    demonstrate injury to a pecuniary interest in order to obtain judicial 
    review, or if persons must have
    
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    a property interest in close proximity to a discharge or surface waters 
    in order to obtain judicial review). States are free under today's rule 
    to impose reasonable requirements that administrative remedies be 
    exhausted in order to preserve the opportunity to challenge final 
    permitting actions in State court. This rule does not apply to Tribal 
    programs. EPA will decide at a later time whether it should be extended 
    to Tribes.
    
    2. Rationale and Authority
    
        a. Restrictive Standing Requirements In States. EPA has become 
    aware of instances in which citizens are barred from challenging State-
    issued permits because of restrictive standing requirements in State 
    law. EPA believes this is a gap in the regulations setting minimum 
    requirements for State 402 permit programs that needs to be addressed.
        In 1993, a coalition of environmental groups filed two petitions 
    requesting that EPA withdraw the Virginia State 402 permit program, 
    citing a limitation on citizen standing, among other alleged 
    deficiencies. In particular, they alleged that recent changes in the 
    law in the State of Virginia had significantly narrowed the public's 
    opportunity to challenge State-issued 402 permits. Virginia's State 
    Water Control Law, the State law under which Virginia's authorized 
    program is administered, authorizes only an ``owner aggrieved'' to 
    challenge permits in court. VA Code 62.1-44.29.1 The petitioners 
    alleged that in 1990, the Virginia legislature amended and narrowed the 
    statutory definition of ``owner.'' They also alleged that under three 
    opinions of the Virginia Court of Appeals, only a permittee has 
    standing to challenge the issuance or denial of a 402 permit in State 
    court. Environmental Defense Fund v. State Water Control Board, 12 Va. 
    App. 456, 404 S.E.2d 728 (1991), reh'g en banc denied, 1991 Va. App. 
    LEXIS 129; Town of Fries v. State Water Control Board, 13 Va. App. 213, 
    409 S.E.2d 634 (1991). See Citizens for Clean Air v. Commonwealth, 13 
    Va. App. 430, 412 S.E.2d 715 (1991)(interpreting similar language in 
    Virginia Air Pollution Control Law). They alleged that under these 
    three decisions, riparian landowners, local governments that wish to 
    draw drinking water from the waters in question, downstream permittees, 
    local business and property owners' associations, local civic 
    associations, and environmental organizations whose members use the 
    waters in question may not challenge a State-issued permit in State 
    court.
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        \1\  EPA notes that in April 1996, the Virginia legislature 
    passed a bill that would amend certain Virginia statutes, including 
    the Water Control Law, with respect to the availability of judicial 
    review. EPA is assessing the impact of the bill, which is not yet 
    effective as law.
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        When EPA issued the regulations that delineate the elements of an 
    approvable program, EPA did not contemplate that State law might limit 
    the opportunity for interested citizens to challenge final permit 
    decisions in State court to such a degree that it is substantially 
    narrower than the opportunity afforded under Sec. 509 of the Clean 
    Water Act to challenge federally-issued permits, or to the point that 
    adequate and effective public participation in the permit issuance 
    process would be compromised. EPA now believes that this is the case in 
    at least a limited number of States and, thus, believes it needs to 
    specify standing requirements in Part 123.
        b. Policy Concerns With Restrictive Standing Provisions. EPA 
    believes that the ability to judicially challenge permits is an 
    essential element of public participation under the Clean Water Act. 
    Permits issued under Sec. 402 (also known as National Pollutant 
    Discharge Elimination System or NPDES permits) fall within the broad 
    range of processes that are subject to the Congressional directive of 
    Sec. 101(e) that public participation be ``provided for, encouraged, 
    and assisted by the Administrator and the States.'' Permits are a 
    critical means of implementing the requirements and objectives of the 
    Clean Water Act because they establish specific effluent limitations 
    applicable to individual dischargers covered by the permits.
        As EPA noted when it proposed today's rule on March 17, 1995 (60 FR 
    14588), when citizens are denied the opportunity to challenge executive 
    agency decisions in court, their ability to influence permitting 
    decisions through other required elements of public participation, such 
    as public comments and public hearings on proposed permits, may be 
    seriously compromised. If citizens perceive that a State administrative 
    agency is not addressing their concerns about 402 permits because the 
    citizens have no recourse to an impartial judiciary, that perception 
    has a chilling effect on all the remaining forms of public 
    participation in the permitting process. Without the possibility of 
    judicial review by citizens, public participation before a State 
    administrative agency could become a paper exercise. State officials 
    will inevitably spend less time considering and responding to the 
    comments of parties who have no standing to sue, but will be more 
    attentive to the comments of parties who can challenge the 
    administrative decision in court.
        The United States Court of Appeals for the Fourth Circuit has 
    agreed that ``broad availability of judicial review is necessary to 
    ensure that the required public comment period serves its proper 
    purpose. The comment of an ordinary citizen carries more weight if 
    officials know that the citizen has the power to seek judicial review 
    of any administrative decision harming him.'' Virginia v. Browner, No. 
    95-1052, slip op. at 17 (4th Cir. March 26, 1996) (upholding EPA's 
    denial of Virginia's proposed permitting program under Title V of the 
    Clean Air Act). The Fourth Circuit quoted from EPA's March 17, 1995 
    proposal to support that conclusion. Other courts also have recognized 
    broadly that meaningful and adequate public participation is an 
    essential part of a State program under Section 402. See e.g., Natural 
    Resources Defense Council v. EPA, 859 F.2d 156, 175-78 (D.C. Cir. 1988) 
    (approving Part 123 regulations regarding citizen intervention in State 
    enforcement actions); Citizens for a Better Environment v. EPA, 596 
    F.2d 720, reh'g denied, 596 F.2d 725 (7th Cir. 1979) (invalidating EPA 
    approval of a State program in the absence of prior promulgation of 
    guidelines regarding citizen participation in State enforcement 
    actions).
        These points are reinforced by comments received regarding the 
    proposed rule. As described in more detail in the response to comments 
    document that is included in the rulemaking record, many comments 
    received by EPA expressed concerns that a State's failure to provide 
    standing for non-dischargers to seek judicial review of permits creates 
    an uneven playing field that may result in:
         A failure by a State permitting agency to adequately 
    consider comments by citizens because it is not judicially accountable 
    to them, while at the same time giving undue deference to those of a 
    discharger who may bring an action in court;
         A reduction in public participation in the permit process 
    because such participation is perceived as fruitless; and
         A government that is perceived by its citizens to be 
    distant and unaccountable.
        Moreover, the lack of adequate public participation increases the 
    likelihood that States may issue permits with limits and conditions 
    that are inadequate to protect the environment because permit writers 
    will not have the benefit of the valuable insights and
    
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    information provided by public participants. Finally, today's rule also 
    effectuates EPA's strong policy interest in deferring to State 
    administration of authorized NPDES programs. EPA firmly believes that 
    States should implement the NPDES program in lieu of the federal 
    government. However, EPA just as firmly believes that the opportunity 
    for citizen participation is a vital component of a State NPDES 
    program. In authorizing State programs to act in lieu of the federal 
    government, EPA must ensure that the implementation of the State 
    program will be both substantively adequate and procedurally fair. 
    Because this rule will provide additional assurance of State program 
    adequacy and fairness, it will allow EPA to exercise less oversight of 
    State programs and allow more State autonomy in implementing NPDES 
    programs.
        c. Legal Authority. EPA believes it has authority under the Clean 
    Water Act to promulgate today's rule. Section 101(e) of the CWA 
    provides, in part:
    
        Public participation in the development, revision, and 
    enforcement of any regulation, standard, effluent limitation, plan, 
    or program established by the Administrator or any State under this 
    chapter shall be provided for, encouraged, and assisted by the 
    Administrator and the States.
    
        This language explicitly directs that both the Administrator and 
    the States must provide for, encourage, and assist public participation 
    in the development of any ``regulation, standard, effluent limitation, 
    plan, or program'' established under the Act. Section 101(e) also 
    requires that EPA, ``in cooperation with the States, shall develop and 
    publish regulations specifying minimum guidelines for public 
    participation in such processes.''
        As EPA noted in the preamble to the March 17, 1995 proposed rule, 
    Congress included the provisions relating to public participation in 
    Section 101(e) because it recognized that ``[a] high degree of informed 
    public participation in the control process is essential to the 
    accomplishment of the objectives we seek--a restored and protected 
    natural environment.'' S. Rep. 414, 92d Cong., 2d Sess. 12 (1972), 
    reprinted in A Legislative History of the Water Pollution Control Act 
    Amendments of 1972, Cong. Research Service, Comm. Print No. 1, 93d 
    Cong., 1st Sess. (1973) (hereinafter cited as 1972 Legis. Hist.) at 
    1430 (emphasis added).
        The Senate Report observed further that the implementation of water 
    pollution control measures would depend, ``to a great extent, upon the 
    pressures and persistence which an interested public can exert upon the 
    governmental process. The Environmental Protection Agency and the State 
    should actively seek, encourage and assist the involvement and 
    participation of the public in the process of setting water quality 
    requirements and in their subsequent implementation and enforcement.'' 
    Id. See also Senate Report at 72, 1972 Legis. Hist. at 1490 (``The 
    scrutiny of the public * * * is extremely important in insuring * * * a 
    high level of performance by all levels of government and discharge 
    sources.'').
        Similarly, the House directed EPA and the States ``to encourage and 
    assist the public so that it may fully participate in the 
    administrative process.'' H. Rep. 911, 92d Cong., 2d Sess. 79, 1972 
    Legis. Hist. at 766. The House also noted, ``steps are necessary to 
    restore the public's confidence and to open wide the opportunities for 
    the public to participate in a meaningful way in the decisions of 
    government;'' therefore, public participation is ``specifically 
    required'' and the Administrator is ``directed to encourage this 
    participation.'' Id. at 819. Congressman Dingell, a leading sponsor of 
    the CWA, characterized Section 101(e) as applying ``across the board.'' 
    1972 Legis. Hist. at 108. See also id. at 249.
        The Act reinforces the importance of the directive in Sec. 101(e) 
    by reiterating it repeatedly. See e.g., Sec. 402(b)(3) (State permit 
    programs must provide for public notice and an opportunity for hearing 
    before a State issues an NPDES permit); Sec. 505(a) (``any citizen'' is 
    authorized to bring enforcement suits); Sec. 303(c)(1) (States are to 
    hold public hearings in reviewing and revising State water quality 
    standards); Sec. 319 (a)(1) and (b)(1) (States are to notice and take 
    public comment on nonpoint source management programs); Sec. 320(f) 
    (public review and comment required on plans for protection of 
    estuaries).
        Other provisions of the Act reinforce and confirm EPA's authority 
    to promulgate today's rule. First, Sec. 304(i) provides that EPA shall 
    ``promulgate guidelines establishing the minimum procedural and other 
    elements of any State program'' under Sec. 402. Today's rule specifies 
    such a requirement. Second, Sec. 501(a) confers general authority on 
    the Administrator to prescribe such regulations as are necessary to 
    carry out her functions under the CWA. EPA believes it must heed the 
    command of Sec. 101(e) in carrying out the general authority provided 
    by Secs. 304(i) and 501(a). Finally, Sec. 402(b)--the provision that 
    establishes the statutory standards applicable to the approval of State 
    permitting programs by the Administrator--itself contains an explicit 
    requirement for public participation in the development of State 
    permits. Section 402(b)(3) provides that EPA may disapprove a State 
    NPDES program if adequate authority does not exist ``to insure that the 
    public * * * receive notice of each application for a permit and to 
    provide an opportunity for public hearing before a ruling on each such 
    application'' (emphasis added). Section 402(b)(3) must be interpreted 
    in light of the command of Sec. 101(e) that public participation be 
    ``provided for, encouraged, and assisted by the Administrator and the 
    States.'' Especially in light of Sec. 101(e), it is inconceivable that 
    Congress intended the public hearing required by Sec. 402(b)(3)--and 
    other forms of public participation in the State administrative 
    process--to be a meaningless exercise.
        Thus, EPA believes it has authority to specify reasonable State 
    court judicial review requirements for purposes of NPDES State program 
    approval in order to ensure that the administrative process serves its 
    intended purpose. Today's rule will help ensure a minimum level of 
    public participation among State water pollution control programs and 
    minimize the possibility for unfair and inconsistent treatment of 
    similarly situated people potentially affected by State permit 
    decisions. It will reduce pressures on States to compete against each 
    other in a downward spiral towards less effective and overly 
    restrictive judicial review provisions in State permit programs. At the 
    same time, it will help to ensure that similar pollution sources in 
    different States will be treated fairly and consistently.
    
    3. Regulatory Language
    
        The language of today's final rule differs from the language 
    proposed on March 17, 1995. The proposed language would have required 
    that ``[a]ll States that administer or seek to administer a program 
    under this part must provide any interested person an opportunity for 
    judicial review in State Court of the final approval or denial of 
    permits by the State.'' The language of the proposal was based on 
    Sec. 509(b)(1) of the Clean Water Act, which provides that ``any 
    interested person'' may obtain judicial review in the United States 
    Court of Appeals of the Administrator's action in issuing or denying 
    any permit under Sec. 402 of the Clean Water Act. The intent of the 
    proposal was to provide for meaningful public participation before the 
    State permitting agency by ensuring that ``any interested person'' has 
    the opportunity to judicially challenge final
    
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    action on State-issued permits to the same extent as if the permit were 
    federally issued.
        As is noted elsewhere in this preamble, a number of commenters 
    (including several States) argued that the Clean Water Act does not 
    authorize EPA to specify any standing requirement applicable to State 
    402 programs, or to impose the federal standing provisions contained in 
    Sec. 509 upon the States. Other commenters argued that EPA could 
    provide for meaningful public participation before the State permitting 
    agency without going so far as to prescribe that ``any interested 
    person'' must be afforded standing by the States. Some of these 
    commenters (including several States) stated that the proposed language 
    was too rigid because a State might provide for meaningful public 
    participation in the administrative process before the State permitting 
    agency even though it does not precisely meet the ``any interested 
    person'' test laid out in the proposal.
        After considering these and related comments on the proposal, EPA 
    decided to adopt a more flexible, functional test that is tied directly 
    to the mandate of Sec. 101(e). Today's rule provides that States 
    seeking to administer an authorized program under Sec. 402 of the Clean 
    Water Act must provide an opportunity for judicial review in State 
    court of the final approval or denial of permits by the State that is 
    sufficient to provide for, encourage, and assist public participation 
    in the permitting process.
        A State will certainly meet this standard if it allows an 
    opportunity for judicial review that is the same as that available to 
    obtain judicial review in federal court of a federally-issued NPDES 
    permit. As noted above and in the preamble to the proposed rule, 
    Sec. 509(b)(1) governs the availability of judicial review of 
    federally-issued NPDES permits. The term ``interested person'' in 
    Section 509(b) is intended to embody the injury in fact rule of the 
    Administrative Procedure Act, as set forth by the Supreme Court in 
    Sierra Club v. Morton, 405 U.S. 727 (1972). Montgomery Environmental 
    Coalition v. Costle, 646 F.2d 568, 576-78 (D.C. Cir. 1980); accord 
    Trustees for Alaska v. EPA, 749 F.2d 549, 554-55 (9th Cir. 1984); see 
    also Roosevelt Campobello Int'l Park Comm'n v. EPA, 711 F.2d 431, 435 
    (1st Cir. 1983); S. Conference Rep. No. 1236, 92d Cong, 2d Sess. 146 
    (1972), 1972 Legis. Hist. at 281, 329.
        The majority of decisions on standing under the Clean Water Act and 
    other environmental statutes have held that plaintiffs must at least 
    satisfy the requirements of Article III. See, e.g., NRDC v. Texaco Ref. 
    & Mktg., Inc., 2 F.3d 493, 505 (3d Cir. 1993); NRDC v. Watkins, 954 
    F.2d 974, 978 (4th Cir. 1992). As interpreted by the United States 
    Supreme Court, the standing requirement of Article III contains three 
    key elements:
    
        [A]t an irreducible minimum, Art. III requires the party who 
    invokes the court's authority to ``show that he personally has 
    suffered some actual or threatened injury as a result of the 
    putatively illegal conduct of the defendant,''* * * and that the 
    injury ``fairly can be traced to the challenged action'' and ``is 
    likely to be redressed by a favorable decision * * *''
    
        Valley Forge Christian College v. Americans United for Separation 
    of Church and State, Inc., 454 U.S. 464, 472 (1982) (citations 
    omitted). See also Lujan v. Defenders of Wildlife, 504 U.S. 555, 560-61 
    (1992).
        With respect to the nature of the injury that an ``interested 
    person'' must show to obtain standing, the Supreme Court held in Sierra 
    Club v. Morton, 405 U.S. at 734-35, that harm to an economic interest 
    is not necessary to confer standing. Harm to an aesthetic, 
    environmental, or recreational interest is sufficient, provided that 
    the party seeking judicial review is among the injured. This holding 
    was most recently reaffirmed by the Supreme Court in Lujan v. Defenders 
    of Wildlife, 504 U.S. at 562-63 (``[o]f course, the desire to use or 
    observe an animal species, even for purely aesthetic purposes, is 
    undeniably a cognizable interest for purposes of standing.'').
        On the other hand, today's rule also provides that a State does not 
    ``provide for, encourage, and assist'' public participation in the 
    permitting process if it narrowly restricts the class of persons who 
    may challenge the approval or denial of permits (for example, if only 
    the permittee can obtain judicial review, or if persons must 
    demonstrate injury to a pecuniary interest in order to obtain judicial 
    review, or if persons must have a property interest in close proximity 
    to a discharge or surface waters in order to obtain judicial review.) 
    As the regulation itself makes clear, these are only examples of such 
    deficiencies in State programs. EPA believes that if State law does not 
    allow broad standing to judicially challenge State-issued NPDES 
    permits--including standing based on injury to aesthetic, 
    environmental, or recreational interests--the opportunity for judicial 
    review will be insufficient to ensure that public participation before 
    the State permitting agency will serve its intended purpose. See 
    Virginia v. Browner, No. 95-1052, slip op. at 16-18 (4th Cir. March 26, 
    1996). At a minimum, ordinary citizens should be in a position of 
    substantial parity with permittees with respect to standing to bring 
    judicial challenges to State permitting decisions.
        EPA will examine the opportunities for judicial review of State-
    issued 402 permits that are provided by State law, on a case-by-case 
    basis, to determine whether or not the State adequately ``provides for, 
    encourages, and assists'' public participation in the NPDES permitting 
    process. EPA will look to the State Attorney General to provide a 
    statement that the laws of the State meet the requirements of today's 
    rule. 40 CFR 123.23.
        Today's rule applies to final actions with respect to modification, 
    revocation and reissuance, and termination of permits, as well as the 
    initial approval or denial of permits.
    
    4. Exhaustion of Administrative Remedies
    
        Standing to judicially challenge permits should be distinguished 
    from a requirement that potential litigants must exhaust administrative 
    remedies in order to preserve their opportunity to bring judicial 
    challenges. For example, federal regulations require that all persons 
    must raise reasonably ascertainable issues during the public comment 
    period on a draft 402 permit (40 CFR 124.13). Interested persons must 
    request an evidentiary hearing on a permit decision they wish to 
    challenge (40 CFR 124.74). Today's proposal does not affect the 
    authority of States to adopt similar, reasonable requirements.
    
    5. Consideration of Alternatives
    
        In addition to the proposed approach (which would have required 
    that State law provide any ``interested person'' an opportunity to 
    challenge the approval or denial of 402 permits issued by States in 
    State court), EPA also considered as an alternate approach, amending 
    Part 123 to require that State law must provide an opportunity for 
    judicial review of a final State permit action to permit applicants and 
    any person who participated in the public comment process. EPA 
    solicited comments on that approach. One commenter endorsed this 
    alternate approach as a way to ensure that access to courts is limited 
    to those who participated in the administrative process.
        After considering that and related comments, EPA decided to adopt a 
    more flexible, functional test that is tied directly to the mandate of 
    Sec. 101(e). This functional test and reasons for EPA's adoption of 
    today's rule are described in more detail above at I.3. However, this 
    rule does not affect States' ability to
    
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    adopt reasonable requirements that interested persons exhaust available 
    administrative remedies, including participating in the submittal of 
    public comments, to preserve their opportunity to challenge final 
    permitting actions in State court.
    
    6. Time Period for Compliance
    
        Any approved State section 402 permit program which requires 
    revision to conform to this part shall be so revised within one year of 
    the date of promulgation of this regulation, unless a State must amend 
    or enact a statute in order to make the required revision, in which 
    case such revision shall take place within 2 years. New States seeking 
    EPA authorization to operate the NPDES program must comply with this 
    regulation at the time authorization is requested. This is consistent 
    with current requirements for State programs found at Sec. 123.62(e). 
    In the March 17, 1995 proposal, EPA requested comment on whether a 
    shorter time frame should be imposed than what is provided at 
    Sec. 123.62(e) to comply with this regulation.
        Commenters were divided on the issue of the time frame for 
    implementation. One commenter expressed concern that the two-year time 
    frame is too short and does not allow enough time for a legislature to 
    amend its rules in a reasoned and thoughtful manner. Another noted that 
    a State would require a full two years to enact legislative changes and 
    additional time to engage in administrative rulemaking, including 
    providing public notice and conducting a hearing, to determine the 
    level of participation that constitutes an ``interested person'' as 
    proposed. Yet another commenter indicated that States would require a 
    minimum of three years following promulgation to comply with the rule 
    to have sufficient time to develop, adopt, implement, and receive EPA 
    approval.
        Other commenters stated that the two-year time frame is too long 
    and that compliance with the rule should be undertaken immediately or, 
    if a State needs to amend its statute, within the first legislative 
    session. Another commenter added that a 1-2 year compliance period is 
    unnecessary since legislation needed to comply with the rule is simple, 
    straightforward and easily accomplished.
        While EPA believes it has adequate authority under the CWA to 
    impose a shorter time frame than that imposed under 40 CFR 
    Sec. 123.62(e), the Agency believes that the 1-2 year compliance period 
    as required under its existing regulations is the most appropriate time 
    frame for this rule because it provides States with adequate time to 
    make necessary changes while taking into account the need for 
    legislative action.
    
    II. Summary of Response to Comments
    
        A number of comments were received in response to the March 17, 
    1995 proposal. EPA's full response to those comments is provided in the 
    response to comments document included in the record for this 
    rulemaking. However, EPA has summarized its response to some of the 
    major comments below.
    
    1. EPA Authority to Require Standing
    
        A number of commenters asserted that the Clean Water Act does not 
    provide EPA with authority to prescribe State court judicial review 
    requirements for NPDES permits. For the reasons set forth above, and as 
    further detailed in the response to comments document, EPA believes 
    that it has authority under the Clean Water Act to promulgate today's 
    rule.
    
    2. Judicial Review is Distinct from Public Participation
    
        Commenters also contended that judicial review and public 
    participation are not the same and treated differently in the CWA and 
    applicable regulations. Thus, EPA may not impose judicial standing 
    requirements to resolve public participation concerns.
        For reasons set forth above and as further detailed in the response 
    to comments document, EPA believes broad standing to challenge permits 
    in court to be essential to meaningful public participation in NPDES 
    programs. See Virginia v. Browner, No. 95-1052, slip op. at 17 (4th 
    Cir. March 26, 1996).
    
    3. Rule would Impermissibly Affect State Sovereignty
    
        Commenters stated that the proposed rule would require that a State 
    waive its sovereign immunity in a manner dictated by EPA in order to 
    obtain approval of its NPDES program. Commenters argued that this is 
    impermissible unless Congress has made its intent to do so unmistakably 
    clear in the language of the Clean Water Act (the ``plain statement 
    rule''). Gregory v. Ashcroft, 501 U.S. 452, 460 (1991); Will v. 
    Michigan Dep't of State Police, 491 U.S. 58 (1989); Atascadero State 
    Hospital v. Scanlon, 473 U.S. 234, 242 (1985). They stated that the 
    Clean Water Act does not contain such a ``plain statement.''
        Today's rule does not impermissibly impinge on a State's sovereign 
    immunity, nor does the ``plain statement rule'' have any application 
    here. This is because States voluntarily assume the NPDES program. 
    Section 402 of the CWA provides that States that wish to obtain 
    authorization from EPA to implement the NPDES program requirements may 
    apply to EPA and, where they meet the requirements of Sec. 402, be 
    approved to operate a permit program in lieu of the federal program. 
    States seek this authorization voluntarily, based on State interests; 
    there is no mandate that they do so. However, in choosing to regulate 
    in lieu of the federal government, a State must meet federal 
    requirements set forth in the CWA and implementing regulations. These 
    requirements will now include an explicit standing requirement. If a 
    State finds any of these conditions for federal approval unacceptable, 
    the State may decline the opportunity to implement the NPDES program 
    and leave such implementation to the federal government. The Supreme 
    Court has held that Congress may offer the States the choice of 
    regulating an activity according to federal standards or having State 
    law preempted by federal regulation (New York v. U.S., 505 U.S. 144, 
    167 (1992) (specifically referring to the Clean Water Act); Hodel v. 
    Virginia Surface Mining & Reclamation Assn., Inc., 452 U.S. 264, 288 
    (1981)).
        Similarly, the ``plain statement rule'' applied in such cases as 
    Gregory v. Ashcroft, 501 U.S. 452 (1991), does not apply where Congress 
    has provided a choice for the States. As the Court stated in Gregory, 
    the requirement that Congress clearly state its intent to preempt 
    traditional State sovereign powers ``is nothing more than an 
    acknowledgment that the States retain substantial sovereign powers 
    under our constitutional scheme, powers with which Congress does not 
    readily interfere.'' Id. at 461. It is a rule of interpretation 
    designed to avoid a potential constitutional problem. Here, however, as 
    discussed above, there is no constitutional dilemma.
        Because today's rule will be imposed only on States that 
    voluntarily seek authorization (or choose to retain authorization) for 
    a permit program under Sec. 402, it does not interfere with State 
    powers. Thus, no ``plain statement'' of Congressional intent is 
    necessary. In any case, this rule has a minimal effect upon State 
    standing, because it applies only to administration of the federally 
    authorized State NPDES program, but does not affect State standing 
    requirements in any other respect.
    
    [[Page 20977]]
    
    4. Potential Conflicts with the Tenth Amendment
    
        Some commenters also argued that the proposal is suspect under the 
    Tenth Amendment because it would expand the standing rights already 
    afforded by State law, contrary to FERC v. Mississippi, 456 U.S. 742 
    (1982) (standing and appeal provisions of Public Utilities Regulatory 
    Policies Act of 1978 upheld only because they did not expand standing 
    rights afforded by State law).
        For reasons similar to those explained in paragraph 3 above, the 
    Agency does not believe this rule is suspect under the Tenth Amendment. 
    The CWA is a federal program that draws on Commerce Clause authority to 
    require nationwide adherence to federal standards protecting water 
    quality. Section 402 of the CWA provides that States that wish to 
    obtain authorization from EPA to implement the NPDES program 
    requirements may apply to EPA and, where they meet the requirements of 
    Sec. 402, be approved to operate a permit program in lieu of the 
    federal program. Similarly, to retain authorization, States must 
    continue to meet federal requirements, including the new one 
    promulgated today. States seek this authorization voluntarily. As noted 
    above, the Supreme Court has held that Congress may offer the States 
    the choice of regulating an activity according to federal standards or 
    having State law preempted by federal regulation. New York, Hodel. 
    Because States voluntarily choose to assume responsibility for the 
    Sec. 402 program, this rule does not require that States expand their 
    standing rights.
        The commenter's reliance on FERC v. Mississippi is misplaced. In 
    fact, FERC supports the legality of today's rule. As in New York and 
    Hodel, the FERC Court upheld federal conditions on State implementation 
    of a federal program, including procedural requirements, on the grounds 
    that the federal law in question, like the Clean Water Act, allowed 
    States the choice to regulate according to federal requirements or 
    leave implementation to the federal government. Recently, the U.S. 
    Court of Appeals for the Fourth Circuit upheld a standing rule under 
    the Clean Air Act (CAA) against similar Tenth Amendment challenges by 
    the Commonwealth of Virginia. The Court found that the CAA did not 
    compel States to modify their standing rules but merely induced them to 
    do so through financial sanctions and imposition of federal 
    requirements; this was found to not violate the Tenth Amendment. 
    Virginia v. Browner, No. 95-1052, slip op. (4th Cir. March 26, 1996).
    
    5. The Potential for Waste and Abuse of Judicial Resources
    
        One commenter stated that Congress has expressed concern about the 
    potential for waste and abuse involving State judicial resources (e.g., 
    being subject to harassing lawsuits) that could result from the 
    proposed rule. (1972 Legis. Hist. at 467.)
        Today's rule does not encourage harassing lawsuits. Instead, it 
    effectively balances the CWA's strong policy favoring public 
    participation in the development of water pollution controls (see CWA 
    Sec. 101(e)) with the policy to recognize, preserve, and protect the 
    primary rights and responsibilities of the States to prevent, reduce, 
    and eliminate pollution (see CWA Sec. 101(b)). The rule ensures that 
    citizens will be able to influence State permitting decisions through 
    public participation as Congress intended. In addition, States may 
    impose reasonable requirements that prospective plaintiffs exhaust 
    administrative remedies in order to preserve their opportunity to 
    challenge State-issued permits in State court.
        In addressing comments on the proposed rule, EPA surveyed a number 
    of States that provide citizen standing to challenge permits in State 
    court (Connecticut, New Jersey, Maryland, Georgia, Michigan, Iowa, 
    Colorado, California, and Washington) concerning the frequency of 
    judicial permit appeals as compared to the total number of permits 
    issued by the States in the last five calender years. EPA found the 
    frequency of such judicial appeals to be very low particularly when 
    compared to the total number of permits issued by those States. Four 
    States (Iowa, Maryland, Michigan, and Connecticut) reported that they 
    each had one permit judicially appealed within the last five years. The 
    number of permits issued by each of those States during that time 
    ranged from 116 (for Connecticut) to 1175 (for Iowa). Other States 
    reported similar rates of State permit judicial appeals. EPA has also 
    found very low rates of judicial permit appeals for NPDES permits that 
    it issues in States that have not been authorized to issue NPDES 
    permits. Finally, a number of commenters supported EPA's statement in 
    the proposed rule that the Agency did not expect that any significant 
    portion of permits would be challenged in State courts. See 60 FR at 
    14591. This information confirms EPA's belief that this rule will not 
    impose a discernable burden on State judicial resources.
    
    6. Suggested Revisions
    
        Several commenters noted that the rule must clearly reflect the 
    proper limits of standing to sue. In response to this and other related 
    comments, EPA has decided not to specify, as proposed, that ``any 
    interested person'' must be provided an opportunity for judicial review 
    of State-issued permits in State court. Instead, the Agency has adopted 
    a more flexible, functional final rule that is tied directly to the 
    statutory language of Sec. 101(e).
        The final rule provides that States that administer or seek to 
    administer an authorized NPDES program must provide an opportunity for 
    judicial review in State court of State permitting decisions that is 
    sufficient to provide for, encourage, and assist public participation 
    in the permitting process. A State will meet this standard if State law 
    allows an opportunity for judicial review that is the same as that 
    available to obtain judicial review in federal court of federally-
    issued permits. States may demonstrate to EPA that even if their 
    standing rules are not the same as these federal standing provisions, 
    they are nevertheless broad enough to provide for, encourage, and 
    assist public participation in the administrative process before the 
    State permitting agency. A State will not meet this standard if it 
    narrowly restricts the class of persons who may challenge the approval 
    or denial of permits (for example, if only the permittee is able to 
    obtain judicial review, or if a person must have a property interest in 
    close proximity to a discharge or surface waters in order to obtain 
    judicial review, or if the State requires that persons demonstrate 
    injury to a pecuniary interest in order to obtain judicial review). 
    (``A plaintiff need not show `pecuniary harm' to have Article III 
    standing; injury to health or to aesthetic, environmental, or 
    recreational interests will suffice.'' Virginia v. Browner, No. 95-
    1052, slip op. at 17 (4th Cir. March 26, 1996), citing United States v. 
    Students Challenging Regulatory Agency Procedures (SCRAP), 412 U.S. 
    669, 686-87 (1973); Sierra Club v. Morton, 405 U.S. 727, 734 (1972).)
        EPA believes this approach will ensure the meaningfulness of public 
    participation in the State permitting process, without prescribing a 
    specific level of standing that all States must afford. Therefore, it 
    should affect even fewer States than the proposal.
    
    7. Time Frame for Compliance
    
        This issue is addressed above.
    
    [[Page 20978]]
    
    8. Indian Tribes
    
        EPA did not propose to subject Indian permitting programs under 
    Sec. 402 to the requirements of today's rule. However, EPA did solicit 
    comment on this issue. Commenters raised several concerns with regard 
    to the treatment of Indian Tribes under the proposal. A few commenters 
    requested that the exemption for Tribes be removed from the rule and 
    stated that to exclude Tribes would be ``outside the realm'' of the 
    CWA. These commenters stated that Tribes should be treated as States 
    under CWA Sec. 518(e) and should not be exempted from the rule. Others 
    suggested that one alternative for addressing Tribal NPDES permits is 
    to use EPA's objection authority contained in CWA Sec. 402(d). One 
    commenter added that the rule is unnecessary with respect to Tribes 
    because Tribes have already provided for public participation, 
    including authorizing judicial review of Tribal administrative actions. 
    The Agency is not subjecting Tribal permitting programs under Sec. 402 
    to the requirements of this rule for the time being, as discussed in 
    the proposal and in more detail in the response to comments document. 
    The Agency will make a final determination at a later time whether to 
    extend the requirements of today's rule to Indian Tribes.
        With regard to the suggestion that EPA use its objection authority 
    to oversee Tribal permit decisions, EPA does not agree that it should 
    use its authority to review permits prior to issuance as a substitute 
    for public participation in the permitting process. With respect to the 
    necessity of this rule for Tribes, EPA appreciates that some Indian 
    Tribes already provide for the participation of interested or aggrieved 
    parties in permitting matters. While EPA does not as a general matter 
    feel that Tribal procedures should be less rigorous with respect to 
    public participation than State procedures, this rule does raise 
    special issues regarding Federal Indian policy and law which EPA is 
    still assessing. EPA may propose regulatory action in the future with 
    respect to judicial review of Tribally-issued NPDES permits. This rule, 
    however, would not preclude a Tribe from voluntarily including a 
    judicial review process as part of its program application.
    
    9. Virginia-Specific Issues
    
        Some commentators raised the issue that this rule singles out the 
    Commonwealth of Virginia, and that EPA is proposing this rule to avoid 
    the process of deciding on a petition to withdraw Virginia's NPDES 
    authorization. Based on general information, EPA believes that there 
    may be a small number of States in addition to Virginia that have 
    restrictive standing laws pertaining to State judicial review of State-
    issued NPDES permits. In addition, several other States have indicated 
    in comments to the rule that they may have to revise their current 
    program regulations in response to the proposal. Although today's rule 
    provides more flexibility for State programs with respect to standing 
    requirements than the proposal, EPA believes that a small number of 
    States in addition to Virginia might need to revise their programs to 
    comply with the final rule.
        EPA has chosen to proceed with this rulemaking because the Agency 
    believes that adequate public participation in authorized State NPDES 
    permitting programs is fundamental to the effective implementation of 
    the CWA, and that limitations or potential limitations upon such 
    participation are best addressed through a regulation that will help 
    ensure an appropriate opportunity for public participation in all 
    authorized States. With respect to the Virginia withdrawal petition, it 
    is EPA's view that the appropriate mechanism for addressing the citizen 
    standing issues raised in that petition is to clarify the fundamental 
    elements of effective public participation programs in a rulemaking. 
    Other issues raised in the petition concerning the Virginia NPDES 
    program will be resolved in a separate proceeding.
        One commenter stated that Virginia citizens are given full and 
    serious consideration when administrative decisions are made on permit 
    conditions. This commenter added that judicial standing is granted to 
    those who can demonstrate injury. Another stated that Virginia law does 
    not imply a restriction on third-party private property rights; rather, 
    third parties have a right to bring a claim before State court if their 
    property is damaged or they are otherwise harmed by a permitted 
    activity.
        As discussed in more detail above, EPA has reason to believe that 
    Virginia does not provide for an effective public participation program 
    because it restricts standing to judicially contest final State-issued 
    permits to the discharger.2 Numerous commenters supported this 
    concern, which they asserted results in a situation where citizen 
    comments do not need to be taken seriously or can be ignored since 
    citizens have no ability to challenge permits in court. In any case, 
    today's rule is not about a single State or State program; rather, the 
    rule is intended to ensure that all authorized NPDES programs provide 
    the judicial standing necessary to ensure effective public 
    participation in the permitting program. Moreover, today's rule does 
    not require that a State meet a single standing formula; rather, a 
    State must demonstrate that its access to courts is sufficiently broad 
    to ensure adequate public participation in the permitting process.
    ---------------------------------------------------------------------------
    
        \2\  See footnote 1.
    ---------------------------------------------------------------------------
    
    10. Impact of the Rule
    
        Some commenters also questioned the impact of today's rule. One 
    commenter stated that EPA must conduct a regulatory impact analysis 
    (RIA) and request Office of Management and Budget review in accordance 
    with E.O. 12866 or withdraw the rule. This commenter noted that the 
    rule meets the definition of ``significant regulation'' and therefore 
    must be assessed in an RIA. Another commenter stated that the rule 
    affects small entities and EPA must prepare a Regulatory Flexibility 
    Analysis. One commenter stated that further analysis is necessary to 
    assess the potential impact of the rule.
        EPA does not believe that the rule meets the definition of a 
    significant regulatory action, as defined in E.O. 12866. The rule 
    potentially impacts only very few States and is consistent with and 
    effectuates the public participation provisions of the CWA. OMB has 
    determined that this rule is not a ``significant regulatory action'' 
    under the terms of E.O. 12866 and is therefore not subject to its 
    review. With regard to the need for a Regulatory Flexibility Analysis, 
    EPA notes that the rule applies to States with authorization to 
    administer the NPDES permit program, and States are not considered 
    small entities under the Regulatory Flexibility Act. Nor does the 
    Agency believe that the rule will have a significant impact on small 
    businesses due to the potential for such businesses to incur increased 
    litigation costs. As described in more detail in responses to 
    individual comments in the record for this rulemaking, EPA's experience 
    with States that already provide broad standing to challenge permits 
    indicates that ensuring appropriate criteria for standing in the few 
    States that now unduly limit it will not result in a significant 
    portion of permits being challenged in State court. Thus, a Regulatory 
    Flexibility Analysis is not necessary.
        Nothing in this rule or preamble should be construed as addressing 
    the
    
    [[Page 20979]]
    
    standing of citizen plaintiffs under Secs. 309 or 505 of the Clean 
    Water Act.
    
    11. Support for the Rule
    
        Numerous commenters supported some or all of the rule. Many of them 
    agreed with the Agency's proposal to include language stating that 
    ``any interested person'' should be able to appeal pollutant discharge 
    permits in State court. These commenters viewed the rule as necessary 
    to ensure meaningful public participation, in the permitting process. 
    As described above, EPA has chosen to not require that States 
    explicitly adopt an ``interested person'' standard, but instead has 
    decided to provide flexibility in this area consistent with the need 
    for effective public participation.
        Commenters stated that the rule is necessary to ensure meaningful 
    public participation and expressed concern that if standing is not 
    broadened in those States that unduly restrict it, citizen comments 
    will not be taken seriously or may be ignored since citizens have no 
    ability to challenge permits in court. Other commenters stated that the 
    rule is necessary for citizens to challenge permit terms that directly 
    impact their property rights and valuable State resources. Other 
    commenters stated that the lack of meaningful public participation has 
    a direct adverse impact on business. Other commenters stated that the 
    rule would bring consistency, accountability, and credibility to the 
    permitting process and significantly improve the quality of the final 
    permits. EPA has addressed these comments in more detail in the 
    response to comments document but notes that promulgation of this rule 
    should address many of the concerns raised by these commenters.
    
    III. Administrative Requirements
    
    1. Compliance with Executive Order 12866
    
        Under Executive Order 12866 (58 FR 51735, October 4, 1993), the 
    Agency must determine whether the regulatory action is ``significant,'' 
    and therefore subject to review by the Office of Management and Budget 
    (OMB) and the requirements of the Executive Order. The Order defines 
    ``significant regulatory action'' as one that is likely to lead to a 
    rule that may:
        (1) have an annual effect on the economy of $100 million or more, 
    or adversely and materially affect a sector of the economy, 
    productivity, competition, jobs, the environment, public health or 
    safety, or State, local, or Tribal governments or communities;
        (2) create a serious inconsistency or otherwise interfere with an 
    action taken or planned by another agency;
        (3) materially alter the budgetary impact of entitlements, grants, 
    user fees, or loan programs or the rights and obligations of recipients 
    thereof; or
        (4) raise novel legal or policy issues arising out of legal 
    mandates, the President's priorities, or the principles set forth in 
    the Executive Order.
        EPA believes that only a very few authorized States may be impacted 
    by this rule. This rule is consistent with and effectuates the public 
    participation provisions of the CWA. It has been determined that this 
    rule is not a ``significant regulatory action'' under the terms of 
    Executive Order 12866 and is therefore not subject to OMB review. As a 
    result, the Agency is not conducting a Regulatory Impact Analysis.
    
    2. Unfunded Mandates Reform Act and Compliance With Executive Order 
    12875
    
        Title II of the Unfunded Mandates Reform Act of 1995 (UMRA), P.L. 
    104-4, establishes requirements for Federal agencies to assess the 
    effects of their regulatory actions on State, local, and Tribal 
    governments and the private sector. Under section 202 of UMRA, EPA 
    generally must prepare a written statement, including a cost-benefit 
    analysis, for the proposed and final rules with ``federal mandates'' 
    that may result in expenditures to State, local, and Tribal 
    governments, in the aggregate, or to the private sector, of $100 
    million or more in any one year. Before promulgating an EPA rule for 
    which a written statement is needed, Sec. 205 of UMRA generally 
    requires EPA to identify and consider a reasonable number of regulatory 
    alternatives and adopt the least costly, most cost-effective or least 
    burdensome alternative that achieves the objectives of the rule.
        In addition, under Sec. 203 of UMRA, before EPA establishes any 
    regulatory requirements that may significantly or uniquely affect small 
    governments, including Tribal governments, it must develop a small 
    government agency plan. The plan must provide for notifying potentially 
    affected small governments, enabling timely input in the development of 
    EPA regulatory proposals with significant Federal intergovernmental 
    mandates, and informing, educating, and advising small governments on 
    compliance with the regulatory requirements.
        The specific provisions of Secs. 202 and 205 of UMRA do not apply 
    because this rule does not contain any Federal mandates. As discussed 
    above, the rule does not impose any enforceable duty on any State, 
    local, or Tribal government or the private sector. Moreover, any duties 
    arising from this rule are the result of participation in a voluntary 
    Federal program. States are free to leave NPDES regulation to the 
    federal government if they find the requirements in today's rule 
    unacceptable. In any event, no mandates in this rule would result in 
    the expenditure of $100 million or more in any one year by governmental 
    or private entities. With respect to Sec. 203 of UMRA, this rule will 
    impact State governments only; there will be no significant impact or 
    unique effect on small governments.
        EPA did consult with States and Tribes during the proposal and the 
    public comment period. The Agency contacted each State individually, 
    seeking its views on the proposal. With regard to Indian Tribes, EPA 
    also worked with representatives of Tribes as well as through the 
    Agency's American Indian Environmental Office to assure a full 
    opportunity for review and comment on the proposal and to ensure an 
    understanding of Tribal concerns or issues raised by this rulemaking.
    
    3. Paperwork Reduction Act
    
        This rule does not contain information requirements subject to OMB 
    review under the Paperwork Reduction Act, 44 U.S.C. 3501 et seq.
    
    4. Regulatory Flexibility Act
    
        Under the Regulatory Flexibility Act (RFA), 5 U.S.C. 601 et seq., 
    EPA must prepare a Regulatory Flexibility Analysis for regulations 
    having a significant impact on a substantial number of small entities.
        This rule applies only to States with authorization to administer 
    the NPDES permit program. States are not considered small entities 
    under the RFA. Therefore, pursuant to Section 605(b) of the Regulatory 
    Flexibility Act, 5 U.S.C. 605(b), I certify that this final rule will 
    not have a significant economic impact on a substantial number of small 
    entities.
    
    List of Subjects in 40 CFR Part 123
    
        Environmental protection, Administrative practice and procedure, 
    Water pollution control.
    
        Dated: May 1, 1996.
    Carol M. Browner,
    Administrator.
    
        For the reasons set forth in this preamble, part 123, Chapter I of 
    Title 40 of the Code of Federal Regulations is to be amended as 
    follows:
    
    [[Page 20980]]
    
    PART 123--[AMENDED]
    
        1. The authority citation for part 123 continues to read as 
    follows:
    
        Authority: Clean Water Act, 33 U.S.C. 1251 et seq.
    
        2. Section 123.30 is added to read as follows:
    
    
    Sec. 123.30  Judicial review of approval or denial of permits.
    
        All States that administer or seek to administer a program under 
    this part shall provide an opportunity for judicial review in State 
    Court of the final approval or denial of permits by the State that is 
    sufficient to provide for, encourage, and assist public participation 
    in the permitting process. A State will meet this standard if State law 
    allows an opportunity for judicial review that is the same as that 
    available to obtain judicial review in federal court of a federally-
    issued NPDES permit (see Sec. 509 of the Clean Water Act). A State will 
    not meet this standard if it narrowly restricts the class of persons 
    who may challenge the approval or denial of permits (for example, if 
    only the permittee can obtain judicial review, if persons must 
    demonstrate injury to a pecuniary interest in order to obtain judicial 
    review, or if persons must have a property interest in close proximity 
    to a discharge or surface waters in order to obtain judicial review.) 
    This requirement does not apply to Indian Tribes.
    
    [FR Doc. 96-11328 Filed 5-7-96; 8:45 am]
    BILLING CODE 6560-50-P
    
    

Document Information

Effective Date:
6/7/1996
Published:
05/08/1996
Department:
Environmental Protection Agency
Entry Type:
Rule
Action:
Final rule.
Document Number:
96-11328
Dates:
This rule is effective on June 7, 1996. Under EPA's State 402 program rules, States will have up to two years to adopt legislative changes, if necessary, to meet this requirement and maintain federal program authorization.
Pages:
20972-20980 (9 pages)
Docket Numbers:
FRL-5500-9
RINs:
2040-AC43: Amendments to Requirements for Authorized State Permit Programs Under Section 402 of the Clean Water Act
RIN Links:
https://www.federalregister.gov/regulations/2040-AC43/amendments-to-requirements-for-authorized-state-permit-programs-under-section-402-of-the-clean-water
PDF File:
96-11328.pdf
CFR: (7)
40 CFR 509(b)(1)
40 CFR 123.62(e)
40 CFR 101(e))
40 CFR 101(e)
40 CFR 402
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