Commanding Clean Water

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Commanding Clean WaterProtecting Public Health and theAquatic Environment17.32 Environmental Politics1

Issues to Consider: When and how did water pollution geton the government agenda and howwas this “problem” ultimately framed? How did the Clean Water Act of 1972try to accomplish governmentenvironmental policy goals? Did the CWA 1972 reduce theproblem(s)?17.32 Environmental Politics2

The Problem Urbanization & Population Growth Industrialization & AgriculturalTechnology Waterways as Open Access Resource– Harbors, bays, rivers, lakes, ponds– Marginal cost of use is “0”– Cost of Exclusion is Very High17.32 Environmental Politics3

U.S. Waterways17.32 Environmental Politics4

US Urban ############################ ####################### ##################################### # ## #################### ######################### ################################# ####### # ########### ############## ############ ## ######################## ############ ##################### ############################### # ################# ####################################### # ###### #### ############################# ###### # ###### ### #### ###################### #################### # # # #### ########### ########## # # ###################################### ## #### ########## #### ###### ## ############ #### # ############# # # # # # ## # #### ### # # ################# ############## ### # ### ## ###### ###### # ###### ##### ##### ## ## # ##### ## ### ########################### ### #### ############ ################# ############ ## # ############### ###### ##################################### # ### ######### ## # # ################ # ############################### # ###################################### ####### # ### ### #################################### ######### #### # ############################## # # # ###################### # ###### # # # # ############# # ################# ### #### ## #### # ##### # # ##################### ## ################ # # # # #### # ## ## ######### ######## ###### ####### # # # ## ############ ## ### ## ## # #### # ### #### ### # #### ## ########### ## ######################### ## ############################ ##### ## ################################# # #### ############ ### ### # # #### ########################## ##### ########## ## ### # # ###### #################### # # # ################# # ############ ################################# # ######### # # ######### ### ## ##### #### # ############################ ####### ## ## ### ## ############### ## # ## ## ### ## # ###### # ############ ##### # # ### ####### ## ## # #### ### # ### # ### ## # ## ############ ######## # ###### ########## #### # # ### ## ##### #### ## ## ## ##### ###### # # # # # ########## # # ######## #################### ###### # # ######## ### # ## ############### ##### ## #### ### ######### # # # ######## ## # # # # # ################## # ####### ###### ############## ### # # # ########## ###### # # # ### # ## ### ######## ###### # ############ ###### # ### ###### ######### ############### # # ## ## # ######################## # ####################### ############################# ######### ###### ####### #### ### ##### ### # ################# ######################## # ## ############## ########################################### #####################################17.32 Environmental Politics######5

Estimates of Dischargespre-1972 (millions of pounds/year)5-dayBODTSSTDSTPTNPoint ,8006,00031,8471011,111Total PS:14,04256,355322,0314541,670Non-Point 533,478,6761,858,4893,44014,15057%98%83%87%88%% NSPPaul Portney (1990) Public Policies for Environmental Protection , p. 109.17.32 Environmental Politics6

Refuse Act of 1899 To protect navigation Ban dumping of refuse matter intowaterways Federal permitting17.32 Environmental Politics7

Water Pollution Control Act 1948 To encourage water pollution control(interstate municipal sewage) Federal research & investigation State and local governments setstandards Federal loans for municipal sewagetreatment– no funds ever appropriated17.32 Environmental Politics8

Water Pollution Control Act Amendments1956 Encourages States to set water qualitycriteria (interstate municipal sewage) Federal (discretionary) enforcementassistance to mediate state-polluterdisputes; based on volunteerism &consensus building– Public Health Service, HEW Federal grants for municipal sewagetreatment– up to 55% of cost17.32 Environmental Politics9

Water Quality Act 1965 First federal law to mandate state water qualitystandards To attain ambient water quality standards set bystates for interstate water bodies States must set water quality standards,implementation plans (discharge limits to meetstandards), & enforcement plans to limit pollution byindividual sources Federal government would approve the plans Federal financing of municipal sewage treatmentplants as per WPCA 195617.32 Environmental Politics10

Pollution Control Pathology No realistic way to determine dischargelimits based on water quality criteria No way to establish which dischargerswere to blame for violations of waterquality criteria State enforcement weak– Lack of capacity– Lack of will17.32 Environmental Politics11

Clean Water Act 1972 1970 Nixon proposes modest bill– Congress does not act 1971 Nixon issues executive order– EPA to require discharge data from industry– EPA to issue permits for discharges 1972 CWA– Far more stringent than Nixon proposal (120pages)– Many times more costly in grants to states17.32 Environmental Politics12

Statutory Goal “ restore the chemical, physical, andbiological integrity of the nation’s waters ”– Eliminate all (point source) pollutant dischargesinto the nation’s navigable waterways by 1985– “ provides for the protection and propagation offish, shellfish, and wildlife, and provides forrecreation in and on the water ” by 1983– The term ‘‘point source’’ means any discernible, confined and discreteconveyance, including but not limited to any pipe, ditch, channel, tunnel,conduit, well, discrete fissure, container, rolling stock, concentrated animalfeeding operation, or vessel or other floating craft, from which pollutantsare or may be discharged.This term does not include agriculturalstormwater discharges and return flows from irrigated agriculture.17.32 Environmental Politics13

Provisions -- General States to set water quality standards according touse designation set by state– Recreation, fishing, waste disposal, irrigation, etc.– (EPA guidelines) EPA to set discharge limits based on technology– Best available current technology as of 1979– Best available economically achievable technology by 1983 All facilities discharging pollutants into U.S.waterways required to have NPDES permit17.32 Environmental Politics14

Provisions – Municipal SewagePlants All municipal treatment plants existingin 1977 to have secondary treatment All municipal treatment plants to have“ best practicable treatmenttechnology” by 1983 ”17.32 Environmental Politics15

Provisions – Non-Municipal SewagePlants– All new discharge sources (except municipaltreatment plants) to have “ best availabledemonstrated control technology,operating methods, or other alternatives”17.32 Environmental Politics16

Provisions – Toxic Pollutants EPA to set standards for “toxic”discharges EPA to set standards for pre-treatmentstandards for water entering municipaltreatment plants– To control “toxic” pollutants dumped byindustry into municipal systems– 20,000 dischargers in 2,500 municipalsystems17.32 Environmental Politics17

Provisions – Enforcement EPA can delegate enforcement tostates 18 billion for municipal sewagetreatment (75% of cost by federal government)17.32 Environmental Politics18

Clean Water Act Mechanisms Command & Control– Regulation by Standard Setting & Enforcement– Extensive State Participation/Authority SpecificityStrict DeadlinesHammer ClausesTechnology Forcing ProvisionsCitizen Engagement– Legal standing & cost recovery– Public hearings17.32 Environmental Politics19

Analysis CWA 1972 offers many concessions tostates– 43 states have assumed responsibility forimplementing and enforcing the CWA Focus on point source pollution only– What about non-point source pollution? Federal money used as carrot Not actually implemented until 1976!– Result of a law suit17.32 Environmental Politics20

1977 CWA Amendments Extended deadlines for meeting dischargelimits to 1984– Non-toxic pollutants (sewage): “best conventionalpollution control technology”– Toxic Pollutants: “best available technology” Relaxes secondary treatment requirement– MWWTP discharging into deep ocean where“fishable & swimmable” & drinkable criteria aremet 25 billion additional in federal grants forMWWTPs17.32 Environmental Politics21

% with Treatment*Levels of MWWP with rimary TreatmentNo Treatment1960 1970 1978 1980 1982 1996* Of those served by municipal waste water systemsPaul Portney (1990) Public Policies for Environmental Protection , p. 136.17.32 Environmental Politics22

40353025Fecal Coliform (200cells/100ml)20Dissolved Oxygen ( 5 mg/l)15Phosporus ( 1 995% of Readings Violating StandardWater Pollution Trends17.32 Environmental Politics23

Scope of the Problem TodayNutrientsBacteriaSiltationO2 Depleting SubstancesMetalsHabitat AlterationSuspended SolidsOil & GreasePesticidesToxic OrganicsRivers (mi)Lakes (acres)Estuaries (sq mi)01020304050% of Resource Impaired17.32 Environmental Politics24

Assessed Resource ImpairmentSources of tmo. Dep.ForestryHabitat Mod.Hydromod.Ind. Pnt. SourceLand Waste Disp.Municipal Pt. SourceNatural SourcesResource Extrac.Urban RunoffRiversLakesEstuaries17.32 Environmental Politics25

17.32 Environmental Politics 10 Water Quality Act 1965 First federal law to mandate state water quality standards To attain ambient water quality standards set by states for interstate water bodies States must set water quality standards, implementation plans (discharge limits to meet standards), & enforcement plans to limit .

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