[Federal Register Volume 69, Number 131 (Friday, July 9, 2004)]
[Proposed Rules]
[Pages 41720-41743]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 04-15614]
[[Page 41719]]
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Part V
Environmental Protection Agency
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40 CFR Part 131
Water Quality Standards for Coastal and Great Lakes Recreation Waters;
Proposed Rule
Federal Register / Vol. 69, No. 131 / Friday, July 9, 2004 / Proposed
Rules
[[Page 41720]]
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 131
[OW-2004-0010; FRL-7785-6]
RIN 2040-AE63
Water Quality Standards for Coastal and Great Lakes Recreation
Waters
AGENCY: Environmental Protection Agency.
ACTION: Proposed rule.
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SUMMARY: The Environmental Protection Agency (EPA) is proposing to
establish water quality criteria for bacteria for coastal recreation
waters in specific States and Territories. The States and Territories
covered by this proposed rule do not have water quality standards for
bacteria that comply with the requirements of section 303(i) of the
Clean Water Act. Under these circumstances, the Act requires EPA to
promptly propose such standards. The criteria proposed today apply to
coastal and Great Lakes waters that specific States and Territories
have designated for swimming, bathing, surfing, or similar water
contact activities and for which the State or Territory does not have
in place EPA-approved bacteria criteria that are as protective of human
health as EPA's 1986 recommended bacteria criteria. If this proposal is
promulgated, the Federally designated water quality criteria will be
added to the States' and Territories' water quality criteria applicable
to coastal recreation waters. If a State or Territory subsequently
adopts and EPA approves water quality standards that meet the
requirements of section 303(i), EPA will withdraw the Federal standards
for that State's or Territory's coastal recreation waters.
DATES: EPA will accept public comments on this proposed rule until
August 9, 2004.
ADDRESSES: Submit your comments, identified by Docket ID No. OW-2004-
0010, by one of the following methods:
Federal eRulemaking Portal: http://www.regulations.gov.
Follow the online instructions for submitting comments.
Agency Web site: http://www.epa.gov/edocket. EDOCKET,
EPA's electronic public docket and comment system, is EPA's preferred
method for receiving comments. Follow the online instructions for
submitting comments.
E-mail: [email protected].
Fax: (202) 566-0409.
Mail: Water Quality Standards for Coastal and Great Lakes
Recreation Waters, Environmental Protection Agency, Mailcode: 4305 T,
1200 Pennsylvania Ave., NW., Washington, DC 20460. Please include a
total of three copies.
Hand Delivery: EPA Docket Center Public Reading Room, EPA/
DC, EPA West, Room B102, 1301 Constitution Ave., NW., Washington, DC
20460. Such deliveries are only accepted during the Docket's normal
hours of operation, and special arrangements should be made for
deliveries of boxed information. Please include a total of three
copies.
Instructions: Direct your comments to Docket ID No. OW-2004-0010.
EPA's policy is that all comments received will be included in the
public docket without change and may be made available online at http://www.epa.gov/edocket, including any personal information provided,
unless the comment includes information claimed to be Confidential
Business Information (CBI) or other information whose disclosure is
restricted by statute. Do not submit information that you consider to
be CBI or otherwise protected through EDOCKET, regulations.gov, or e-
mail. The EPA EDOCKET and the Federal regulations.gov Web sites are
``anonymous access'' systems, which means EPA will not know your
identity or contact information unless you provide it in the body of
your comment. If you send an e-mail comment directly to EPA without
going through EDOCKET or regulations.gov, your e-mail address will be
automatically captured and included as part of the comment that is
placed in the public docket and made available on the Internet. If you
submit an electronic comment, EPA recommends that you include your name
and other contact information in the body of your comment and with any
disk or CD-ROM you submit. If EPA cannot read your comment due to
technical difficulties and cannot contact you for clarification, EPA
may not be able to consider your comment. Electronic files should avoid
the use of special characters, any form of encryption, and be free of
any defects or viruses. For additional information about EPA's public
docket visit EDOCKET on-line or see the May 21, 2002 Federal Register
(67 FR 38102). For additional instructions on submitting comments, go
to section I.B. of the SUPPLEMENTARY INFORMATION section of this
document.
Docket: All documents in the docket are listed in the EDOCKET index
at http://www.epa.gov/edocket. Although listed in the index, some
information is not publicly available, i.e., CBI or other information
whose disclosure is restricted by statute. Certain other material, such
as copyrighted material, is not placed on the Internet and will be
publicly available only in hard copy form. Publicly available docket
materials are available either electronically in EDOCKET or in hard
copy at the Water Quality Standards for Coastal and Great Lakes
Recreation Waters Docket, EPA/DC, EPA West, Room B102, 1301
Constitution Ave., NW., Washington, DC. The Public Reading Room is open
from 8:30 a.m. to 4:30 p.m., Monday through Friday, excluding legal
holidays. The telephone number for the Public Reading Room is (202)
566-1744, and the telephone number for the Water Quality Standards for
Coastal and Great Lakes Recreation Waters Docket is (202) 566-2422.
FOR FURTHER INFORMATION CONTACT: Lars Wilcut, Standards and Health
Protection Division, Office of Science and Technology (4305 T),
Environmental Protection Agency, 1200 Pennsylvania Ave., NW.,
Washington, DC 20460; telephone number: (202) 566-0447; fax number:
(202) 566-0409; e-mail address: [email protected].
SUPPLEMENTARY INFORMATION:
Table of Contents
I. General Information
A. Does this Action Apply to Me?
B. What Should I Consider as I Prepare My Comments for EPA?
II. Background
A. Statutory and Regulatory Background
B. 1986 Ambient Water Quality Criteria for Bacteria
III. Proposed Criteria for Pathogen Indicators in Coastal Recreation
Waters
A. Scope of Proposed Rule
B. Proposed Criteria for Pathogen Indicators
C. Applicability of the Proposed Rule
IV. EPA Review of State and Territorial Standards
A. How Did EPA Decide Which States and Territories to Include in
Today's Proposed Rule?
B. Which States and Territories are Included in Today's Proposed
Rule?
C. Under What Conditions Will States and Territories be Removed
from a Final Rule?
V. Alternative Regulatory Approaches and Implementation Mechanisms
A. Designating Uses
B. Compliance Schedules
VI. Economic Analysis
A. Identifying Affected Facilities
B. Method for Estimating Potential Compliance Costs
C. Results
VII. Statutory and Executive Order Reviews
A. Executive Order 12866: Regulatory Planning and Review
B. Paperwork Reduction Act
C. Regulatory Flexibility Act
D. Unfunded Mandates Reform Act
E. Executive Order 13132: Federalism
[[Page 41721]]
F. Executive Order 13175: Consultation and Coordination with
Indian Tribal Governments
G. Executive Order 13045: Protection of Children from
Environmental Health and Safety Risks
H. Executive Order 13211: Actions that Significantly Affect
Energy Supply, Distribution, or Use
I. National Technology Transfer and Advancement Act
I. General Information
A. Does This Action Apply to Me?
State and Territorial agencies responsible for adopting and
implementing water quality standards in the States and Territories
identified in 40 CFR 131.41 are the only entities directly affected by
the proposed rule. People concerned with water quality in Coastal and
Great Lakes States may be interested in this proposed rule. Facilities
discharging pollutants to certain waters of the United States in
Coastal and Great Lakes States could be indirectly affected by this
proposed rule since water quality standards are used in determining
water quality-based National Pollutant Discharge Elimination System
(NPDES) permit limits. In addition, beach managers and businesses in
beach areas could also be indirectly affected by this proposed rule
since water quality standards are used in making decisions regarding
beach advisories and closures. Categories and entities that may
indirectly be affected include:
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Examples of potentially
Category affected entities
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Industry................................. Industries discharging
pollutants to the waters of
the States and Territories
identified in Sec. 131.41.
Municipalities........................... Publicly-owned treatment
works discharging pollutants
to the waters of the States
and Territories identified
in Sec. 131.41.
Other.................................... Beach owners and managers,
beach goers
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This table is not intended to be exhaustive, but rather provides a
guide for readers regarding entities likely to be affected by this
action. This table lists the types of entities that EPA is now aware
could potentially be affected by this action. Other types of entities
not listed in the table could also be affected. To determine whether
your facility may be affected by this action, you should carefully
examine the language in Sec. 131.41 of today's proposed rule. If you
have questions regarding the applicability of this action to a
particular entity, consult one of the persons listed in the preceding
FOR FURTHER INFORMATION CONTACT section.
B. What Should I Consider as I Prepare My Comments for EPA?
1. Submitting CBI. Do not submit information claimed as CBI to EPA
through EDOCKET, regulations.gov or e-mail. Clearly mark the part or
all of the information that you claim to be CBI. For CBI information in
a disk or CD-ROM that you mail to EPA, mark the outside of the disk or
CD-ROM as CBI and then identify electronically within the disk or CD-
ROM the specific information that is claimed as CBI. In addition to one
complete version of the comment that includes information claimed as
CBI, a copy of the comment that does not contain the information
claimed as CBI must be submitted for inclusion in the public docket.
Information so marked will not be disclosed except in accordance with
procedures set forth in 40 CFR part 2.
2. Tips for Preparing Your Comments. When submitting comments,
remember to:
i. Identify the rulemaking by docket number and other identifying
information (subject heading, Federal Register date and page number).
ii. Follow directions--The agency may ask you to respond to
specific questions or organize comments by referencing a Code of
Federal Regulations (CFR) part or section number.
iii. Explain why you agree or disagree; suggest alternatives and
substitute language for your requested changes.
iv. Describe any assumptions and provide any technical information
and/or data that you used.
v. If you estimate potential costs or burdens, explain how you
arrived at your estimate in sufficient detail to allow for it to be
reproduced.
vi. Provide specific examples to illustrate your concerns, and
suggest alternatives.
vii. Explain your views as clearly as possible.
viii. Make sure to submit your comments by the comment period
deadline identified.
3. Docket Copying Costs. The first 266 pages are free. Additional
copying incurs a $25 administrative fee and each additional page is
$0.15.
II. Background
A. Statutory and Regulatory Background
1. Clean Water Act
Section 303 (33 U.S.C. 1313) of the Clean Water Act (CWA) directs
States, Territories, and authorized Tribes, with oversight by EPA, to
adopt water quality standards to protect the public health and welfare,
enhance the quality of water and serve the purposes of the CWA. Under
section 303, States, Territories, and authorized Tribes are to develop
water quality standards for navigable waters of the United States
within the State, Territory, or authorized Tribe. Section 303(c)
provides that water quality standards shall include the designated use
or uses to be made of the water and water quality criteria necessary to
protect those uses. The designated uses to be considered by States,
Territories, and authorized Tribes in establishing water quality
standards are specified in the CWA: Public water supplies, propagation
of fish and wildlife, recreation, agricultural uses, industrial uses
and navigation. States, Territories, and authorized Tribes are to
review their water quality standards at least once every three years
and, if appropriate, revise or adopt new standards. The results of this
triennial review must be submitted to EPA, and EPA must approve or
disapprove any new or revised standards.
Section 303(c) of the CWA authorizes the EPA Administrator to
promulgate water quality standards to supersede State, Territorial, or
authorized Tribal standards that have been disapproved or in any case
where the Administrator determines that a new or revised standard is
needed to meet the CWA's requirements. EPA regulations implementing CWA
section 303(c) are published at 40 CFR part 131. Under these rules, the
minimum elements that must be included in a State's, Territory's, or
authorized Tribe's water quality standards include: Use designations
for all water bodies in the State, Territory, or authorized Tribe,
water quality criteria sufficient to protect those use designations,
and an antidegradation policy (see 40 CFR 131.6).
2. The BEACH Act of 2000
The Beaches Environmental Assessment and Coastal Health (BEACH) Act
of 2000 amended the CWA in part by adding section 303(i). Section
303(i)(1)(A) requires that not later than April 10, 2004, ``each State
having coastal recreation waters shall adopt and submit to the
Administrator water quality criteria and standards for the coastal
recreation waters of the State for those pathogens and pathogen
indicators for which the Administrator has published criteria under
section 304(a).'' EPA's Ambient Water Quality Criteria for Bacteria--
1986 (EPA 440/5-
[[Page 41722]]
84-002) is the relevant criteria document published by the
Administrator under CWA section 304(a).
Section 303(i)(2)(A) requires that, ``[i]f a State fails to adopt
water quality criteria and standards in accordance with [section
303(i)(1)(A)] that are as protective of human health as the criteria
for pathogens and pathogen indicators for coastal recreation waters
published by the Administrator, the Administrator shall promptly
propose regulations for the State setting forth revised or new water
quality standards for pathogens and pathogen indicators described in
[section 303(i)(1)(A)] for coastal recreation waters of the State.''
The BEACH Act also added section 502(21) to the CWA, which defines
``coastal recreation waters'' as ``(i) the Great Lakes; and (ii) marine
coastal waters (including coastal estuaries) that are designated under
section 303(c) by a State for use for swimming, bathing, surfing, or
similar water contact activities.'' Section 502(21) explicitly excludes
from the definition of coastal recreation waters ``inland waters; or
waters upstream of the mouth of a river or stream having an unimpaired
natural connection with the open sea.''
B. 1986 Ambient Water Quality Criteria for Bacteria
In 1986, EPA published Ambient Water Quality Criteria for
Bacteria--1986. This document contains EPA's current recommended water
quality criteria for bacteria to protect people from gastrointestinal
illness in recreational waters, i.e., waters designated for primary
contact recreation or similar full body contact uses. Primary contact
recreation is typically defined by States and Territories to encompass
activities that could be expected to result in the ingestion of, or
immersion in, water, such as swimming, water skiing, surfing, kayaking,
or any other activity where immersion in the water is likely. The main
route of exposure to illness-causing organisms in recreational waters
is through accidental ingestion of fecally-contaminated water while
engaging in these activities.
EPA's water quality criteria for bacteria are based on levels of
indicator bacteria, namely Escherichia coli (E. coli) and enterococci,
that demonstrate the presence of fecal pollution. Indicator organisms
such as these have long been used to protect people from illnesses that
may be contracted from engaging in recreational activities in surface
waters contaminated by fecal pollution. These organisms generally do
not cause illness directly, but have demonstrated characteristics that
make them good indicators of fecal contamination and thus the potential
presence of pathogens capable of causing human illnesses such as
gastroenteritis. Gastroenteritis is a term for a variety of diseases
that affect the gastrointestinal tract and are rarely life-threatening.
Symptoms of the illness include nausea, vomiting, stomachache,
diarrhea, headache, and fever. Prior to its publication of the 1986
bacteria criteria document, EPA recommended the use of fecal coliforms
as an indicator organism to protect people from gastrointestinal
illness in recreational waters. However, EPA conducted epidemiological
studies and evaluated the use of several organisms as indicators,
including fecal coliforms, E. coli, and enterococci. EPA subsequently
recommended the use of E. coli or enterococci for fresh recreational
waters and enterococci for marine recreational waters, because levels
of these organisms were more accurate predictors of acute
gastrointestinal illness than levels of fecal coliforms.
In EPA's epidemiological studies, E. coli and enterococci exhibited
the strongest correlation to swimming-associated gastroenteritis, the
former in fresh waters only and the latter in both fresh and marine
waters (Ambient Water Quality Criteria for Bacteria--1986, January,
1986, EPA 440/5-84-002; Health Effects Criteria for Fresh Recreational
Waters, August, 1984, EPA 600/1-84-004; Health Effects Criteria for
Marine Recreational Waters, August, 1983, EPA 600/1-80-031). In marine
waters, the stronger correlation may be due to enterococci's ability to
survive longer than coliforms, similar to the pathogens of concern. In
addition, fecal coliforms are sometimes detected where fecal
contamination is absent, possibly resulting in inaccurate assessments
of recreational safety. For example, Klebsiella spp., a bacterial
organism that is part of the fecal coliform group but which is
generally not harmful to humans, is often present in pulp and paper and
textile mill effluents (Archibald, F., Water Qual. Res. J. Canada
35(1):1-22, 2000; Dufour, Journal WPCF, 48:872-879) .
Table 1 contains the water quality criteria values for the
protection of primary contact recreation that EPA recommended in the
1986 bacteria criteria document (Ambient Water Quality Criteria for
Bacteria--1986). These values were developed based on the
concentrations of E. coli and enterococci from EPA-sponsored
epidemiological studies that roughly correlated to the estimated
illness rate associated with EPA's previously recommended fecal
coliform criterion. This illness rate was estimated to be approximately
0.8% of swimmers exposed in freshwater and 1.9% of swimmers exposed in
marine waters. EPA's 1986 bacteria criteria document indicates the
illness rates are ``only approximate'' and that the 1986 values that
appear in Table 1 were based on these approximations. The 1986 bacteria
criteria document provides geometric mean densities (represented as
average densities over the swimming season) as well as single sample
maximum (SSM) values (representing an unacceptably high value for a
single sample).
A geometric mean represents the central tendency of a series of
data points. Using a geometric, as opposed to an arithmetic, mean helps
to minimize the effect of measurements that might otherwise be
considered outliers. The best way to interpret a series of bacterial
measurements taken over a period of time is in comparison to the
geometric mean. With a large number of measurements, the calculated
geometric mean is expected to be ``close'' to the ``true'' mean of
bacterial concentrations in the waterbody. In contrast, a single sample
with a high value does not necessarily indicate that the waterbody as a
whole has high bacterial levels. The SSM values in the 1986 bacteria
criteria document correspond to probabilities of getting a particular
single sample result when the true mean meets the criterion. A 75%
confidence level value corresponds to the level above which individual
sample values would occur only 25% of the time if the mean level in the
waterbody still meets the standard. Statisticians say that a single
sample reading at this level indicates, with 75% confidence, that the
standard is not being met. The best way to interpret any single
measurement (or small number of measurements) is in comparison to the
SSM. Selecting a lower SSM (e.g., 75%) for comparison to single
measurements will result in a more conservative estimate of whether the
standard is being met. That is, it will set a relatively low bar (75%
confidence) for a determination that the standard has been exceeded.
This will be protective of public health but may result in a greater
number of determinations that the standard was violated. In contrast,
selecting a higher SSM (e.g., 95%) for comparison to single
measurements will result in a less cautious (i.e., less protective)
decision rule but greater certainty that a reading above the SSM really
does indicate that bacteria levels in the waterbody as a whole exceed
the standard.
The 1986 bacteria criteria document includes a table of four SSM
values for each geometric mean based on beach
[[Page 41723]]
usage, which in turn are based on different confidence levels. In
general, where there is a greater potential for exposure in a given
area, a higher degree of protectiveness (i.e., a lower bar for
determining an exceedance) is warranted. The 1986 bacteria criteria
document categorizes the four SSMs as follows: ``designated bathing
beach'' for the 75 percent (most protective) confidence level,
``moderate use for bathing'' for the 82 percent confidence level,
``light use for bathing'' for the 90 percent confidence level, and
``infrequent use for bathing'' for the 95 percent confidence level. The
lowest SSM was assigned to designated bathing beach areas because a
high degree of caution should be used to evaluate the statistical
significance of a measured single value above the criteria for these
areas. The 1986 bacteria criteria document stated that bathing beach
areas are ``frequently lifeguard protected, provide parking and other
public access and are heavily used by the public.'' The document does
not specifically describe in greater detail the potential use frequency
differences of the 82 percent, 90 percent, and 95 percent confidence
levels.
Table 1.--Criteria for Indicators for Bacteriological Densities
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Single sample maximum allowable density
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Lightly used Infrequently
Acceptable swimming Steady state Designated Moderate full full body used full body
associated gastroenteritis geometric mean beach area body contact contact contact
rate per 1000 swimmers indicator density (upper 75% recreation recreation recreation
C.L.) (upper 82% (upper 82% (upper 95%
C.L.) C.L.) C.L.)
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Freshwater:
Enterococci--8........... 33/100 ml \1\ 61 78 107 151
E. coli--8............... 126/100 ml \2\ 235 298 409 575
Marine Water:
Enterococci--19.......... 35/100 ml \3\ 104 158 276 501
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Notes:
\1\ Calculated to nearest whole number using equation: (mean enterococci density) = antilog10 ((illness rate/
1000 people + 6.28)/9.40).
\2\ Calculated to nearest whole number using equation: (mean E. coli density) = antilog10 ((illness rate/1000
people + 11.74)/9.40).
\3\ Calculated to nearest whole number using equation: (mean enterococci density) = antilog10 ((illness rate/
1000 people-0.20)/12.17).
\4\ Single sample limit = antilog10 (log10 indicator geometric mean density/100 ml + (factor determined from
areas under the Normal probability curve for the assumed level of probability * log10 standard deviation)).
The appropriate factors for the indicated one sided confidence levels are: 75% C.L.--.675; 82% C.L.--.935; 90%
C.L.--1.28; 95% C.L.--1.65.
\5\ Based on the observed log standard deviations during the EPA studies: 0.4 for freshwater E. coli and
enterococci; and 0.7 for marine water enterococci. Each jurisdiction should establish its own standard
deviation for its conditions which would then vary the single sample limit.
III. Proposed Criteria for Pathogen Indicators in Coastal Recreation
Waters
A. Scope of Proposed Rule
The requirements of the BEACH Act are limited to ``coastal
recreation waters,'' which are defined in CWA section 502(21) as the
Great Lakes and marine coastal recreation waters (including coastal
estuaries) that are designated under CWA section 303(c) by a State for
use for swimming, bathing, surfing, or similar water contact
activities. The definition explicitly excludes ``inland waters or
waters upstream of the mouth of a river or stream having an unimpaired
natural connection with the open sea.'' EPA interprets CWA section
502(21) to apply only to those Great Lakes waters that are designated
for swimming, bathing, surfing, or similar water contact activities,
consistent with the purpose of the BEACH Act to protect the public from
the health risks associated with swimming in polluted water. Therefore,
today's proposal applies only to those Great Lakes and marine waters
designated by a State or Territory for swimming, bathing, surfing, or
similar water contact activities.
The BEACH Act clearly envisioned and intended that States,
Territories, and authorized Tribes with coastal recreation waters adopt
into their water quality standards bacteria criteria as protective of
human health as EPA's 1986 ambient water quality criteria for bacteria.
Under EPA's water quality standards regulations at 40 CFR part 131,
States, Territories, and authorized Tribes have broad discretion to
designate specific uses to specific waters. They are not required to
designate all waters for swimming, bathing, surfing, or similar water
contact activities (i.e., primary contact recreation), as long as they
have conducted a use attainability analysis that supports the decision
that full attainment of CWA section 101(a) uses (``fishable/
swimmable'') is not feasible for those waters (40 CFR 131.10(g)). For
example, Ohio has designated all of its portion of Lake Erie as
``bathing waters.'' In contrast, Pennsylvania has designated a portion
of Lake Erie as incidental, or secondary, contact recreation. As
explained in the preceding paragraph, today's proposal applies only to
those waters designated by a State or Territory for swimming, bathing,
surfing, or similar water contact activities, not to waters designated
for uses that only involve incidental contact. However, States,
Territories, and authorized Tribes are to continue to work towards the
goal of achieving full attainment of CWA section 101(a) uses
(``fishable/swimmable'') in waters that do not currently attain such
uses. Further, any waters with designated uses that do not include the
uses specified in CWA section 101(a)(2) must be re-examined every three
years to determine if any new information has become available (40 CFR
131.20(a)). If such new information indicates that the uses specified
in CWA section 101(a)(2) are attainable, the State, Territory, or
authorized Tribe is required to revise its water quality standards
accordingly. EPA expects States, Territories, and authorized Tribes to
continue this process and revise their water quality standards where
appropriate. States, Territories, and authorized Tribes may remove a
designated use that is not an existing use if it conducts a use
attainability analysis to demonstrate that the designated use is not
attainable (40 CFR 131.10(g)).
B. Proposed Criteria for Pathogen Indicators
EPA's Ambient Water Quality Criteria for Bacteria--1986 were
developed to protect primary contact recreation uses in ambient waters.
The criteria have two components: a geometric mean, which has the most
direct relationship to risk over the course of a recreation season,
[[Page 41724]]
and a single sample maximum (SSM) which is the best value against which
to compare individual measurements. A geometric mean represents the
central tendency of a series of measurements: in this case,
measurements of bacteria levels. This helps to minimize the effect of
measurements that might otherwise be considered outliers. EPA is
proposing a geometric mean of 126/100 ml for E. coli in fresh waters
and four different SSMs, which vary for coastal recreation fresh waters
based on intensity of use. EPA is proposing a geometric mean of 35/100
ml for enterococci in marine waters and four different SSMs, which vary
for coastal recreation marine waters based on intensity of use. These
are the same values as in the 1986 bacteria criteria document.
Table 2.--Proposed Ambient Fresh Water Quality Criteria for Bacteria
--------------------------------------------------------------------------------------------------------------------------------------------------------
C single sample maximum (per 100 ml)
-------------------------------------------------------------------
C2 moderate C3 light use C4 infrequent
B geometric C1 designated use coastal coastal use coastal
A indicator mean bathing beach recreation recreation recreation
(75% confidence waters (82% waters (90% waters (95%
level) confidence confidence confidence
level) level) level)
--------------------------------------------------------------------------------------------------------------------------------------------------------
E. coli............................................................ 126/100 ml a 235 b 298 b 409 b 575 b
--------------------------------------------------------------------------------------------------------------------------------------------------------
Footnotes to table in paragraph (c)(1):
a This value is for use with analytical methods 1106.1 or 1600 or any equivalent viable method.
b Calculated using the following: single sample maximum = geometric mean * 10[supcaret](confidence level factor * log standard deviation), where the
confidence level factor is: 75%: 0.68; 82%: 0.94; 90%: 1.28; 95%: 1.65. The log standard deviation from EPA's epidemiological studies is 0.4.
Table 3.--Proposed Ambient Marine Water Quality Criteria for Bacteria
--------------------------------------------------------------------------------------------------------------------------------------------------------
C single sample maximum (per 100 ml)
-------------------------------------------------------------------
C2 moderate C3 light use C4 infrequent
B geometric C1 designated use coastal coastal use coastal
A indicator mean bathing beach recreation recreation recreation
(75% confidence waters (82% waters (90% waters (95%
level) confidence confidence confidence
level) level) level)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Enterococci........................................................ 35/100 ml a 104 b 158 b 276 b 501 b
--------------------------------------------------------------------------------------------------------------------------------------------------------
Footnotes to table in paragraph (c)(2):
a This value is for use with analytical methods 1103.1, 1603, or 1604 or any equivalent viable method.
b Calculated using the following: single sample maximum = geometric mean * 10\[supcaret]\ (confidence level factor * log standard deviation), where the
confidence level factor is: 75%: 0.68; 82%: 0.94; 90%: 1.28; 95%: 1.65. The log standard deviation from EPA's epidemiological studies is 0.7.
With respect to identifying an acceptable risk level, Ambient Water
Quality Criteria for Bacteria--1986 includes an estimate of the
historically accepted illness rate associated with the previously
recommended geometric mean value for the fecal coliform criterion.
Based on ratios of E. coli and enterococci to fecal coliform densities,
the historically accepted risk levels for gastrointestinal symptoms
were estimated to be 0.8% of swimmers at fresh water beaches and 1.9%
of swimmers at marine beaches. However, the analysis upon which these
estimates is based is inherently uncertain because there was little
correlation between illness rate and fecal coliform density. These
estimated risk levels were used to calculate the specific bacteria
density values presented in tabular form in the 1986 bacteria criteria
document. These estimated illness rates are described in the 1986
bacteria criteria document as approximate and as EPA's best estimates
at the time. Moreover, it is clear that there is uncertainty both in
estimating the actual historically-accepted risk levels and in
translating these values into corresponding concentration criteria for
E. coli and enterococci in fresh and marine waters. It is also clear
that because the 1986 bacteria criteria document was published before
the BEACH Act added section 303(i) to the CWA, the specific values
presented in tabular form in the 1986 bacteria criteria document were
only recommendations representing one acceptable choice of risk level
to apply to the criterion. At the time the 1986 bacteria criteria
document was published, EPA did not expect that the specific geometric
mean and SSM values would necessarily be used for establishing uniform
Federal water quality criteria for coastal recreation waters in
multiple States, or establish a fixed benchmark for assessing the
protectiveness of State/Territorial water quality standards for
bacteria.
There is no a priori reason to establish a higher level of
protection for fresh waters than for marine waters. The difference in
acceptable risk levels in the 1986 bacteria criteria document (8
illnesses per 1000 swimmers in fresh waters v. 19 per 1000 in marine
waters) was based solely on the calculated risk levels for the
previously recommended criterion of 200 fecal coliforms per 100 ml,
which were different in marine and fresh waters. If the science
supported a reliable correlation between bacteria concentrations and
illness rates, the EPA could, in judging whether a fresh water
criterion is ``as protective of human health as'' EPA's 1986 bacteria
criteria, consider fresh water criteria associated with risk levels up
to 1.9% of swimmers to be sufficient. However, EPA cannot determine,
based on the available data that relate E. coli and enterococci levels
to illness rates, what bacteria concentration would correlate with risk
levels over 1.0% in freshwater. Therefore, the data that relate risk
levels to bacteria concentrations in freshwater are not reliable beyond
1.0% risk to swimmers. Recent peer review of EPA's analysis of the
study data relating illness rates to bacteria concentrations supports
the conclusion that the existing data do not support the
[[Page 41725]]
relationship between rates beyond the level of 1.0% of swimmers and
their correlating bacteria concentrations (External Peer Review of EPA
Analysis of Epidemiological Data from EPA Bacteriological Studies,
February 2004). The peer reviewers said that EPA should not extrapolate
beyond the 1.0% risk level, based on the observed data. Based on that
peer-reviewed information, EPA does not believe, at this juncture, that
it can justify a criterion for fresh water based on any geometric mean
or SSM higher than the levels associated with an illness rate of 1.0%
of swimmers as being as protective of human health as EPA's 1986
bacteria criteria. However, EPA is considering adopting a geometric
mean and SSM values for fresh water that correspond to an illness rate
of 1.0% of swimmers, which would be slightly higher than the criteria
in this proposed rule, which correspond to an illness rate of 0.8% of
swimmers. The E. coli criteria corresponding to an illness rate of 1.0%
of swimmers would be a geometric mean of 206/100 ml and SSM values of
385/100 ml, 489/100 ml, 668/100 ml, and 940/100 ml, corresponding to
the 75, 82, 90, and 95 percent confidence levels. EPA solicits comment
on its choice of illness rate for calculating the criteria.
1. Use of the Single Sample Maximum
EPA is proposing all four SSMs included in the 1986 bacteria
criteria document for each geometric mean. The SSM values allow
decision makers to quantitatively determine, based on a single sample,
when water quality at a particular site may not be associated with
long-term protective conditions (i.e., when overall bacteria
concentrations are likely to exceed the protective central tendency).
This is especially important for beaches that are infrequently
monitored or prone to short term spikes in bacteria concentrations
(e.g., waters that may be affected by a combined sewer overflow
outfall). The 1986 bacteria criteria document does not interpret the
meaning of the term ``single sample maximum''. One interpretation is
that it is a single value never to be exceeded. EPA is soliciting
comment on this interpretation.
An alternative option would be to allow for exceedance of the SSM
when making attainment decisions because bacterial measurements are
inherently variable, due to a number of factors that may not
necessarily reflect underlying water quality. Under this option, an
unacceptably high value for any given individual sample may be used to
trigger a beach advisory or closing or additional monitoring, or it
might be evaluated with other sample results, but would not necessarily
be used alone to determine nonattainment of the water quality
standards.
EPA recognizes that the 1986 bacteria criteria document discusses
SSMs solely in the context of beach closures. SSMs are particularly
important in this context because States and Territories generally use
one or two samples to make beach opening or closure decisions. EPA
could thus interpret the 1986 bacteria criteria document as
recommending the use of SSMs only for decisions related to public
health at beaches. Under this interpretation, the SSMs would be part of
the water quality criteria, but only used for making beach closure and
opening decisions. States and Territories could use only the geometric
mean for other CWA purposes, such as NPDES permitting, TMDLs, and
waterbody assessments. EPA solicits comment on each of the above
interpretations of the term ``single sample maximum.'' Based on its
consideration of these comments, EPA may decide to include an explicit
interpretation or definition of this term in the final regulatory text.
The 1986 bacteria criteria document describes the analysis used to
calculate the criteria. EPA conducted a series of epidemiological
studies in coastal and Great Lakes waters. At each water studied, EPA
calculated the geometric mean of the summer bacterial density, and
correlated this with the summer average gastrointestinal illness rate.
EPA used this correlation as the basis of the geometric mean criterion.
Thus, the geometric mean has the most direct relationship to the
illness rate. With this in mind, EPA could interpret the phrase ``as
protective of human health as'' the 1986 bacteria criteria document to
apply only to the geometric mean. Under this interpretation, EPA would
promulgate only the geometric mean in the final rule. The SSMs would be
available for use as an implementation tool for making beach opening
and closure decisions but would not be part of the applicable water
quality standards. States and Territories would have the flexibility to
use the SSMs in this or any other application of the water quality
standards as they deem appropriate. EPA is soliciting comment on this
interpretation.
2. Categories of Coastal Recreation Waters
Only one SSM would apply to each category of coastal recreation
water: designated bathing beach waters, moderate use coastal recreation
waters, light use coastal recreation waters, and infrequent use coastal
recreation waters. In the 1986 bacteria criteria document, EPA
associated these categories (corresponding to decreasing exposure
potential) with increasing confidence level thresholds on which an
exceedance determination would be based. EPA is proposing the following
definitions for each category of waterbody:
Designated bathing beach waters are those coastal
recreation waters that, during the recreation season, are heavily-used
and may have: a lifeguard, bathhouse facilities, or public parking for
beach access. States may include any other waters in this category even
if the waters do not meet these criteria.
Moderate use coastal recreation waters are those coastal
recreation waters that are not designated bathing beach waters but
typically, during the recreation season, are used by at least half of
the number of people as at typical designated bathing beach waters
within the State. States may also include light use or infrequent use
coastal recreation waters in this category.
Light use coastal recreation waters are those coastal
recreation waters that are not designated bathing beach waters but
typically, during the recreation season, are used by less than half of
the number of people as at typical designated bathing beach waters
within the State, but are more than infrequently used. States may also
include infrequent use coastal recreation waters in this category.
Infrequent use coastal recreation waters are those coastal
recreation waters that are rarely or occasionally used.
Examples of infrequent use coastal recreation waters might include
waters that are at remote locations, difficult to access, or
infrequently used for primary contact recreation due to commerce or
navigation. States and Territories could, at their discretion, place
waters in more protective categories. For example, States and
Territories could choose to provide ``light use'' protection to waters
that might otherwise be considered ``infrequent use'' waters. EPA is
soliciting comment on the proposed definitions of the four categories,
and describes the basis for deriving the definitions in the following
paragraph.
The 1986 bacteria criteria document describes designated bathing
beach waters as those that are frequently lifeguard protected, provide
parking and other public access, and are heavily used by the public.
EPA conducted its epidemiological studies using these types of waters.
The 1986 bacteria criteria document does not define or otherwise
describe the other usage
[[Page 41726]]
categories. EPA recognizes that in order for the public and beach
authorities to understand which SSMs apply to which waters, the terms
in the 1986 bacteria criteria document (designated bathing beach,
moderate use for bathing, light use for bathing, and infrequent use for
bathing) need to be defined. EPA reviewed Web sites in various fields
of study (e.g., meteorology, human health risk characterization, and
urban planning) that use such terminology to differentiate intensities.
EPA observed that moderate rainfall is considered to be about 40% of
heavy rainfall, that moderate alcohol consumption is about 50% of heavy
consumption, and that moderate traffic is about 50% of heavy traffic
(``The Effects of Moderate Alcohol Consumption on Mortality After Heart
Attack,'' www.coloradohealthsite.org/CHNReports/alcohol_heart(1).html;
``What Constitutes Moderate, Significant, and Major Events?,''
www.wxrisk.com/Pages/glossary_geography.htm; ``The Beaufort Wind
Scale,'' www.crh.noaa.gov/lot/webpage/beaufort). Therefore, EPA
proposes that moderate use coastal recreation waters be defined as
waters that are about 50% less intensely used than are designated
bathing beach waters. EPA also observed that a light breeze is
considered to be about half that of a moderate breeze, which led to
EPA's proposal that light use coastal recreation waters have less use
than moderate use coastal recreation waters.
a. State Identification of Coastal Recreation Waters by Category.
EPA intends in today's proposal to objectively define the four
categories so that the public can clearly identify to which category
each coastal recreation water belongs based on its intensity of use for
primary contact recreation. EPA does not have sufficient information
regarding frequency of use of each specific coastal recreation water
covered by this proposal to list all those waters in the rule according
to the four categories defined in 40 CFR 131.41(b). Therefore, EPA is
proposing not to list individual coastal recreation waters by intensity
of use category. EPA recommends that States and Territories evaluate
existing use information and identify which individual coastal
recreation waters belong to each category and make this information
publicly available (e.g., on a State's or Territory's Web site). Even
in the absence of such a listing, EPA believes the proposed definitions
can be objectively applied when CWA actions are taken based on the
proposed rule. A State or Territory would be required to use the 75
percent confidence level SSM when developing TMDLs for, or issuing
permits to facilities discharging into, coastal recreation waters that
meet the definition of designated bathing beach waters. Similarly, a
State or Territory would be required to use an SSM that is no less
stringent than the 95 percent confidence level when developing TMDLs
for, or issuing permits to facilities discharging into, coastal
recreation waters that meet the definition of infrequent use coastal
recreation waters. As States and Territories developed TMDLs and issued
permits consistent with the SSMs, the public would have the opportunity
to review and comment upon the application of SSMs as part of the TMDL
and permitting processes. EPA would use its oversight authority under
CWA section 402(d) to ensure that States and Territories apply the
appropriate SSMs when conducting these types of activities.
EPA's National Beach Guidance and Required Performance Criteria for
Grants (June, 2002, EPA-823-B-02-004) outlined elements that States and
Territories with BEACH Act implementation grants are to consider in
developing tiered monitoring plans. States with BEACH Act
implementation grants are required to tier their beaches according to
potential risk to human health and beach use. The monitoring frequency
and methodology would likely differ depending on how a beach is tiered.
Because most coastal States and Territories are recipients of BEACH Act
implementation grants, States and Territories could use their existing
beach tiering process as a source of information for determining
frequency in categorizing a coastal recreation water for purposes of
determining the applicable SSM. EPA is soliciting comment on this
approach.
b. Alternative Options for Categorization of Coastal Recreation
Waters. EPA recognizes that some States and Territories may not have
enough data regarding the intensity of the use of their coastal
recreation waters to easily and quickly categorize them according to
the four categories specified in the proposed rule. For example, some
States have designated bathing beach waters, but do not further
categorize the remainder of their coastal recreation waters as to
intensity of use. Therefore, EPA is considering another approach by
which the final rule would include only two SSMs for coastal recreation
waters: the 75 percent confidence level for all designated bathing
beaches and a single other confidence level (the 82 percent, 90
percent, or 95 percent confidence level SSM) for all other coastal
recreation waters. If EPA promulgates this approach in the final
rulemaking, the rule would include two columns for SSMs, one column for
designated bathing beach waters and the other column for all other
coastal recreation waters. EPA would select the specific percent
confidence levels from the 1986 bacteria criteria document based on
comments received during the public comment period. In addition, the
final rule would not include the definitions for moderate, light, and
infrequent use coastal recreation waters. The final rule would continue
to include a definition of designated bathing beach waters where the
SSM corresponding to a 75 percent confidence level would apply. In all
waters that are not designated bathing beach waters the other SSM would
apply. As in the proposed option, in implementing SSMs, States and
Territories would apply the designated bathing beach SSM consistent
with the proposed definition of designated bathing beach waters in 40
CFR 131.41(b). EPA expects that a State or Territory would use the 75
percent confidence level SSM when developing TMDLs for, or issuing
permits to facilities discharging into, coastal recreation waters that
meet the definition of designated bathing beach waters, and would use
the other SSM when conducting these activities for other coastal
recreation waters. As States and Territories develop TMDLs and issue
permits consistent with the SSMs, the public would have the opportunity
to review and comment upon the application of SSMs as part of the TMDL
and permitting processes. EPA would use its oversight authority under
CWA section 402(d) to ensure that States and Territories appropriately
apply the SSMs. EPA is soliciting comment on this approach.
EPA is also considering promulgating only the 75 percent confidence
level SSM that would apply to all coastal recreation waters of the
States and Territories included in the final rulemaking. This approach
applies the most stringent SSM to all coastal recreation waters and is
thus more protective than the 1986 bacteria criteria. However, it also
simplifies the application of the standards by eliminating the need to
delineate which SSM applies to specific coastal recreation waters.
Seven States have already adopted the 1986 bacteria criteria for some
or all of their coastal recreation waters using this approach. However,
the 1986 bacteria criteria document clearly recognized that ``one size
does not fit all,'' and that it is reasonable to have different SSMs
[[Page 41727]]
depending on use intensity. EPA is soliciting comment on this approach.
EPA is also requesting comment on an approach under which an SSM
would be identified only for designated bathing beach waters. Since
these are the types of waters in which the epidemiological studies on
which the criteria are based were conducted, and since the primary
focus of the 1986 bacteria criteria document is protecting users of
these types of waters, EPA could interpret the phrase ``as protective
of human health as'' the 1986 criteria to require an SSM only for
designated bathing beach waters, with attainment decisions and other
CWA actions in other coastal recreation waters relying on the geometric
mean only. EPA is also considering an approach where the SSM is not
part of the criterion, but rather part of the water quality standards
implementation process (see Section III.A.1.). If EPA selects this
approach in the final rule, EPA would not need the proposed definitions
of designated bathing beach waters, moderate use coastal recreation
waters, light use coastal recreation waters, or infrequent use coastal
recreation waters in the final rule because these definitions would
only be needed in applying an SSM.
c. Intrastate vs. Interstate Determinations of Use Intensity. EPA's
proposed SSMs apply to categories based on definitions of intensity,
and EPA is proposing that they be interpreted on an intrastate basis
(i.e., the comparison of frequency of use would be made relative to
only the waters within that State). Using this approach, a State or
Territory would categorize its most frequently used coastal recreation
waters as designated bathing beach waters and all others in comparison
to those. An alternative option that EPA is considering is for States
and Territories to apply these categories to particular waters using
interstate comparisons. For example, the number of people at beaches in
a State with a cooler climate (e.g., Washington) may be considerably
less than the number of people at beaches in a State with a much warmer
climate (e.g., Florida). As a result, the number of people at what a
cooler State would designate as a ``moderate use coastal recreation
water'' may be more characteristic of the number of people at an
``infrequent use coastal recreation water'' for a warmer State. States
and Territories could apply these definitions so as to achieve a
consistent level of protection at beaches in the same category
nationally. However, to do so, States and Territories would need
national beach use information to be able to categorize their coastal
recreation waters. EPA is not aware that this information is available.
EPA is soliciting comment on whether these definitions should be
applied using either an intrastate or interstate (national) comparison
of frequency of use or whether it should give States and Territories
the option to choose the basis for comparison. EPA also solicits
comment on where information on beach usage may be found and whether it
is appropriate for use in applying the definitions. EPA is also seeking
comment on the potential consequences of a nationally-based comparison
in States with cooler climates.
d. State Calculation of Site-specific SSMs. EPA is proposing SSMs
based on the 75, 82, 90, and 95 percent confidence levels and is
proposing to include in the rule the equation to calculate site-
specific SSMs. Bacteria measurements are typically highly variable from
day to day. As the SSMs are derived based on a distribution around a
central tendency, the standard deviation of measurements plays an
important role in the width of that distribution. The standard
deviations observed in EPA's epidemiological studies may not be the
same as that for a particular waterbody. Therefore, EPA encourages
States and Territories to collect enough data to calculate site-
specific standard deviations. EPA recognizes that States and
Territories might not have the data to calculate their own standard
deviation; in such a case, those States and Territories would be
required to use EPA's calculated SSMs.
EPA is proposing to require that the data set needed to provide a
site-specific standard deviation used for calculating a revised SSM
contain at least thirty samples for a single recreation season (see 40
CFR 131.41(c)(3)). EPA recognizes that the 1986 bacteria criteria
document contemplates use of a site-specific log standard deviation,
but notes that the document does not provide any information to guide
States and Territories in developing a site-specific log standard
deviation. The 1986 bacteria criteria document references the log
standard deviations observed in EPA epidemiological studies, but does
not specify the number of values used to compute the log standard
deviations. EPA recognizes that the number of values has an effect on
the confidence one places on the standard deviation. For example, in
the Technical Support Document for Water Quality-based Toxics Control
(EPA/505/2-90-001, March 1991, revised June 1992) EPA displays the
effect of the number of values on the precision of the calculated
coefficient of variation (standard deviation divided by the mean). This
display shows that for one coefficient of variation, the 90 percent
confidence interval around the standard deviation is 62%
for five values, 42% for 10 values, 30% for 20
values, and 25% for 30 values, with the confidence
intervals not changing much for more than 30 values. (See Technical
Support Document for Water Quality-based Toxics Control, page 55.)
EPA believes that when a State or Territory calculates an SSM using
a site-specific log standard deviation, the State or Territory should
use a site-specific standard deviation that is based on a large enough
sample size. Ideally, the sample size is large enough that the
``Central Limit Theorem'' holds. The central limit theorem demonstrates
that in large enough samples, the distribution of a sample mean
approximates a normal curve regardless of the shape of the distribution
from which it is sampled. The larger the sample size, the better the
approximation to the normal distribution. A sample size of thirty is
generally accepted by statisticians as the smallest sample size where
the sample standard deviation will approximate the true standard
deviation in a statistically meaningful way (Walpole, R.E., Probability
and Statistics for Engineers and Scientists, 1989). Therefore, EPA
believes that States and Territories should use at least thirty samples
to compute the site-specific log standard deviation. EPA recognizes
that a data set of 30 samples represents a significant amount of data
for States and Territories to collect. EPA also recognizes that it
recommended in the Technical Support Document for Water Quality-based
Toxics Control that permit writers use at least 10 data points for
calculating site-specific coefficients of variations for effluents when
developing permit limits. EPA solicits comments on what constitutes an
adequate data set for calculating site-specific SSMs and whether EPA
should specify a minimum data requirement in the final rule.
3. Choice of Pathogen Indicator for Fresh Coastal Recreation Waters
EPA's 1986 bacteria criteria document shows that either enterococci
or E. coli is an acceptable indicator in fresh waters. EPA is proposing
E. coli for all Great Lakes States with coastal recreation waters
because it is consistent with the 1986 bacteria criteria and because
all Great Lakes States have either adopted or are in the process of
adopting E. coli as a criterion into their water quality standards.
Should a Great Lakes State express a preference for enterococci rather
than E.
[[Page 41728]]
coli before EPA promulgates the final rule, EPA would promulgate the
equivalent enterococci values for that State's fresh coastal recreation
waters. EPA is also soliciting comment on whether it would be more
appropriate to promulgate both E. coli and enterococci criteria for
Great Lakes States and allow each State to choose which indicator to
apply to its coastal recreation waters at the time of implementation.
C. Applicability of the Proposed Rule
1. Applies in Addition to any State/Territory Criteria
Today's proposed Federal criteria do not replace existing bacteria
criteria for coastal recreation waters already adopted by States and
Territories (and for those adopted after May 30, 2000, approved by
EPA). Rather, today's proposed criteria apply in addition to any other
existing CWA-effective criteria for coastal recreation waters already
adopted (and for those adopted after May 30, 2000, approved by EPA).
For states and territories included in today's proposal, permitting
under the National Pollutant Discharge Elimination System (NPDES), as
well as monitoring and assessment based on applicable CWA water quality
standards, would need to be based on the applicable standards for
bacteria in the final rule, in addition to any other applicable
standards for bacteria previously adopted by the State or Territory to
protect uses other than primary contact recreation. This will ensure
that, where commercial shellfishing and primary contact recreation
occur in the same coastal recreation waters, both uses will be
adequately protected by existing State and Territorial standards (which
generally still use fecal coliform) and the new standards for either E.
coli or enterococci. States and Territories may also continue to use
existing criteria for fecal coliform to supplement the new indicators
for the purposes of water body assessment and other purposes where
ambient data are needed. The dual sets of bacteria criteria also will
enable regulatory decisions and actions to continue while collecting
data for the newly adopted E. coli or enterococci criteria. For States
and Territories included in today's proposal, EPA expects that States
and Territories will be actively collecting data on E. coli and/or
enterococci and working to incorporate E. coli and/or enterococci water
quality criteria into their water quality programs, e.g., NPDES, CWA
section 305(b), and CWA section 303(d) programs. As they accomplish
this, States and Territories may phase out their use of fecal coliform
as a supplemental indicator to protect primary contact recreation,
provided this does not result in less protective determinations. While
EPA cannot remove or revise existing State or Territorial standards,
EPA believes that it would not be an efficient use of resources for
States and Territories to base CWA actions related to protection of
primary contact recreation on both fecal coliform and the new,
preferred indicators if the fecal coliform criteria do not provide any
additional protection. States and Territories are also encouraged to
expeditiously revise their water quality standards to remove fecal
coliform criteria that have been replaced by the new indicators in
their implementation of the CWA. EPA solicits comment on this approach
to transitioning from existing standards to the new standards in this
proposed rule.
EPA recognizes that some States and Territories are in the process
of adopting water quality standards to be as protective of human health
as EPA's 1986 bacteria criteria. Once a State or Territory submits the
adopted standards to EPA, the Agency will use CWA sections 303(c) and
303(i) to guide its review of the standards. Water quality standards do
not become effective for Clean Water Act purposes until EPA approves
them (40 CFR 131.21). Once EPA approved a State's or Territory's
standards as being as protective of human health as EPA's 1986 bacteria
criteria, EPA would remove that State or Territory from 40 CFR 131.41.
However, there will be some indefinite period of time between EPA's
approval and EPA removing the State or Territory from 40 CFR 131.41. As
a result, EPA is proposing rule language which would make the EPA-
approved bacteria criteria in State or Territorial water quality
standards effective for CWA purposes upon their approval such that
EPA's promulgated criteria would no longer apply. See 40 CFR
131.41(d)(1). EPA would still plan to remove the State or Territory
from 40 CFR 131.41 but any delay in that process would not delay the
approved State criteria in becoming the sole applicable criteria. EPA
solicits comment on this approach of making the approved State or
Territorial criteria the applicable criteria without first undertaking
APA rulemaking to withdraw the Federal rule for that State or
Territory.
2. Role of State/Territorial General Rules of Applicability
Section 131.41(d)(2) provides that the Federal criteria in today's
rule would be subject to States' general rules of applicability in the
same way and to the same extent as are other Federally-adopted or
State-adopted numeric criteria for coastal recreation waters. For
example, if State or Territorial regulations would authorize mixing
zones in deriving effluent limitations for discharges of bacteria to
coastal recreation waters, such regulations would apply to permit
limitations implementing the criteria in today's rule. As another
example, some State's or Territory's regulations specify the dilution
equations used to develop TMDLs or calculate permit limits; such
regulations would apply using the criteria proposed in today's rule.
EPA is requesting comment on this approach.
IV. EPA Review of State and Territorial Standards
A. How Did EPA Decide Which States and Territories To Include in
Today's Proposed Rule?
As required by CWA section 303(i)(1)(A), EPA evaluated the water
quality standards for bacteria for all 35 coastal States and
Territories using five considerations to determine whether the water
quality standards are as protective of human health as the Ambient
Water Quality Criteria for Bacteria--1986. If a State's or Territory's
water quality standards for bacteria for coastal recreation waters are
as protective of human health as the 1986 bacteria criteria as of the
signature date of the proposed rule, EPA is not including the State or
Territory in the proposed rule. If a State or Territory included in the
proposed rule adopts criteria satisfying CWA section 303(i), and EPA
approves them, prior to promulgation of the final rule, EPA will not
include that State or Territory in the final rule. EPA encourages
States and Territories that are in the process of adopting such
criteria to expeditiously complete this process. EPA believes it is
preferable for a State or Territory to adopt its own such standards
than for EPA to promulgate Federal standards for that State or
Territory. The following paragraphs describe the five considerations.
1. Are the Standards Based on EPA's Recommended Indicators?
EPA interprets CWA section 303(i)(1)(A) to require that States and
Territories must adopt and submit water quality criteria for
enterococci in marine waters and either enterococci or E. coli in fresh
waters. Section 303(i)(1)(A) requires that States and Territories
submit criteria ``* * * for the pathogens and pathogen indicators for
which the Administrator has published criteria under section 304(a).''
EPA's Ambient
[[Page 41729]]
Water Quality Criteria for Bacteria--1986 is the CWA section 304(a)
criteria referred to in CWA section 303(i)(1)(A). The Ambient Water
Quality Criteria for Bacteria--1986 recommended the use of E. coli and
enterococci as pathogen indicators for fresh waters and enterococci for
marine waters. This represented a major shift, as fecal coliform had
historically been the preferred indicator of fecal matter in coastal
waters. As described in Ambient Water Quality Criteria for Bacteria--
1986, EPA does not believe that fecal coliform is a reliable indicator
of human illness risk from full body contact recreation in coastal
recreation waters. Therefore, EPA believes that any State or Territory
with fecal coliform as the only bacteria criterion for some or all of
its coastal recreation waters is not fully compliant with the BEACH Act
and has thus included it in today's proposal. EPA solicits comment on
its interpretation of 303(i). If the commenter disagrees that States
and Territories must adopt criteria for E. coli or enterococci, EPA
requests that the commenter address what type and amount of information
should be sufficient for EPA to determine that fecal coliform (or any
other pathogen indicator) is as protective of human health as the 1986
bacteria criteria. EPA also solicits comment on its assessment of each
State's and Territory's standards.
2. Are the Standards for E. coli and Enterococci Derived From a
Scientifically-Defensible Methodology That Links Them Quantitatively to
an Acceptable Risk Level Under CWA Section 303(i)?
States and Territories have the flexibility to determine an
acceptable risk level within the context of the statutory requirement
in CWA section 303(i) that their water quality standards be ``as
protective of human health as'' the 1986 bacteria criteria. That
flexibility is constrained by the bounds of acceptable risk articulated
by EPA in Ambient Water Quality Criteria for Bacteria--1986. However,
as discussed in the legislative history of the BEACH Act, a State's
criteria may be as protective of human health as the 1986 bacteria
criteria document ``without being numerically equivalent'' but the
criteria would have to be scientifically defensible. (S. Rep. No. 106-
366, at 4 (2000)).
Section III.B. of the preamble explains that the risk levels in the
1986 bacteria criteria document for gastrointestinal symptoms were 0.8%
of swimmers at fresh water beaches and 1.9% of swimmers at marine
beaches. These estimated illness rates are described in the 1986
bacteria criteria document as approximate and as EPA's best estimates
at the time. Section III.B. of the preamble explains why EPA believes
that fresh water criteria corresponding to risk levels up to 1.0% of
swimmers would satisfy the protectiveness requirement of CWA section
303(i), and also why EPA cannot determine, based on the available data
that relate E. coli and enterococci levels to illness rates, what
bacteria concentration would correlate with risk levels over 1.0% in
freshwater. EPA solicits comment on its acceptance of criteria
associated with risk levels up to 1.0% in freshwater.
3. Do the Standards Include Appropriate SSMs?
In the 1986 bacteria criteria document, EPA recommended that States
and Territories adopt appropriate SSM values that correspond to
specific use intensity categories of coastal recreation waters (e.g.,
75 percent confidence level SSM for designated bathing beaches, 82
percent confidence level SSM for moderate use coastal recreation
waters, etc.). Tables 2 and 3 in Section III.B include qualitative
descriptors of beach usage categories associated with different
confidence levels.
EPA's Ambient Water Quality Criteria for Bacteria--1986 also
recommends that States and Territories use a site-specific log standard
deviation in calculating the SSM in recognition of the possibility that
States and Territories may observe significant differences in the log
standard deviation of bacterial measurements. The 1986 bacteria
criteria document explicitly recommends that States and Territories
base the SSM values on a site-specific log standard deviation or, if
site data are insufficient, to use the values EPA observed in its
studies. EPA believes that States and Territories should not be
required to rely on frequency distributions observed in EPA's
epidemiological studies when sufficient site-specific data are
available. In determining whether State and Territory bacteria criteria
are as protective of human health as EPA's 1986 bacteria criteria, EPA
evaluates whether the data set is robust enough to adequately
characterize the distribution. If a State or Territory chooses not to
collect adequate data and not calculate site-specific SSM values, the
State/Territory would need to use the standard deviations from EPA's
studies in Ambient Water Quality Criteria for Bacteria--1986.
EPA reviewed State and Territorial submissions of CWA section
303(i) standards for coastal recreation waters for the adoption of both
a geometric mean and an SSM value. Because the criteria are used for
several purposes under the CWA, adoption of both a geometric mean and
an SSM value gives States and Territories the necessary components to
implement bacteria criteria when developing water quality-based
effluent limits, determining whether a waterbody is attaining its water
quality standards, and issuing beach notifications and advisories. For
example, the SSM value gives States and Territories a practical tool
for making daily decisions to open or close beaches. In contrast, a
geometric mean gives States and Territories a practical tool for
assuring the appropriate level of treatment at NPDES-regulated
facilities to protect human health over the long term.
EPA proposes to consider water quality standards for bacteria for
coastal recreation waters to be as protective of human health as
Ambient Water Quality Criteria for Bacteria--1986 if they include at
least one SSM and if designated bathing areas have an SSM based on at
least the 75 percent confidence level. EPA reviewed State and
Territorial standards for SSM values, and found that many States and
Territories used ``designated beach area'' as a designation for a
subset of their primary contact recreation waters and assigned the 75
percent confidence level to those water bodies, while assigning the 95
percent confidence level to all other water bodies. Other States and
Territories had three categories, while other States and Territories
only had one. EPA solicits comments on this approach for evaluating
State and Territory SSM values in relation to the requirements of the
BEACH Act.
4. Do the Standards Exempt Fecal Contamination From Non-Human Sources?
The Ambient Water Quality Criteria for fBacteria--1986 included a
background discussion of non-human sources under the heading
``Limitations and Extrapolations of Criteria.'' The text of the 1986
bacteria criteria document recommends that States and Territories apply
the E. coli and enterococci criteria to all full body contact
recreation waters unless (1) sanitary and epidemiological studies show
the sources of the indicator bacteria to be non-human, and (2) the
indicator densities are not indicative of a health risk to those
swimming in such waters. CWA section 303(i) provides that if a State or
Territory fails to adopt standards ``that are as protective of human
health as the criteria for pathogens and pathogen
[[Page 41730]]
indicators for coastal recreation waters published by the
Administrator,'' EPA must promptly propose water quality standards for
pathogens and pathogen indicators. In reviewing State or Territorial
water quality standards to determine whether the bacteria criteria are
``as protective of human health as'' EPA's 1986 bacteria criteria
document, EPA examined whether the State or Territorial bacteria
criteria exempted non-human sources. If a State's or Territory's water
quality standards included such an exemption, EPA looked to see whether
that exemption has the same basis as that presented in the 1986
bacteria criteria document, namely, that sanitary and epidemiological
studies show the sources are non-human and that the bacterial densities
are not indicative of a health risk to those swimming in such waters.
EPA is including in today's proposal those States and Territories where
the criteria include exemptions for non-human sources that are
inconsistent with the plain language of EPA's 1986 bacteria criteria
document, as described above.
EPA's approach in developing this proposed rule has been to rely as
much as possible on the actual language in the 1986 bacteria criteria
document. EPA has taken this approach because CWA section 303(i)(2)(A)
requires EPA to promptly propose criteria for States and Territories
that are ``as protective of human health as'' EPA's 1986 bacteria
criteria in cases where a State or Territory has failed to do so.
However, EPA's scientific understanding of pathogens and pathogen
indicators has evolved since 1986. As a result, EPA has, over the
course of the last 18 years, applied its new scientific understanding
to the formulation of policy in the area of how non-human sources are
addressed in water quality standards. For example, in EPA's 1994 Water
Quality Standards Handbook, EPA articulated a policy that States and
Territories may apply water quality criteria for bacteria to
waterbodies designated for recreation with the rebuttable presumption
that the indicators show the presence of human fecal contamination.
This 1994 policy stated:
States may apply bacteriological criteria sufficient to support
primary contact recreation with a rebuttable presumption that the
indicators show the presence of human fecal pollution. Rebuttal of
this presumption, however, must be based on a sanitary survey that
demonstrates a lack of contamination from human sources. The basis
for this option is the absence of data demonstrating a relationship
between high densities of bacteriological water quality indicators
and increased risk of swimming-associated illness in animal-
contaminated waters.
In short, under this policy, a State or Territory could justify a
decision not to apply the criteria to a particular waterbody when
bacterial indicators were found to be of animal origin. EPA is
soliciting comment on a second approach that uses the rebuttable
presumption approach articulated in the 1994 Handbook to be ``as
protective of human health as'' EPA's 1986 bacteria criteria. This
approach would require States and Territories to presume that the
source of E. coli or enterococci is of human origin unless a sanitary
survey demonstrates a lack of contamination from human sources. This
approach would effectively allow for the exclusion of any animal
sources if a State or Territory can demonstrate that the source of
contamination is not human waste.
Some recent studies suggest there may be some risk posed to humans
as a result of exposure to non-human fecal contamination, particularly
those animal sources with which humans regularly come into contact,
i.e., livestock and other domestic animals. Livestock, domestic pets,
and wildlife are carriers of human pathogens and can transmit these
pathogens to surface waters as well as contribute significant numbers
of indicator bacteria to waterbodies (Centers for Disease Control and
Prevention Morbidity and Mortality Report Surveillance for Waterborne
Disease Outbreaks, 1993, 1996, 1998, 2000; Waterborne Pathogens in
Agricultural Watersheds, USDA, June 2000).
Outbreaks of enterohemorrhagic E. coli O157:H7, Salmonella,
Giardia, and Cryptosporidium are frequently of animal origin. Incidents
where these pathogens have been spread to humans through water have
been documented in recent years. In the case of E. coli O157:H7,
several cases have been cited in which fecal contamination from animals
was the probable source of the pathogen. The most prominent examples
include contamination of water supplies, including an outbreak in
Alpine, Wyoming, in June, 1998, affecting 157 people, and a major
outbreak in Walkerton, Ontario, in May and June of 2000 causing more
than 2,300 people to become ill and causing seven deaths (Olsen, S.J.,
CDC Emerging Infectious Diseases, Vol. 8, No. 4, April 2002; CDC
Morbidity and Mortality Weekly Report, 2000; Ontario's Ministry of the
Attorney General, 2000). In the Alpine, Wyoming case, contamination by
wildlife of the community water supply is the suspected source, and in
Walkerton, Ontario, heavy rains causing agricultural runoff to leak
into city wells is suspected. The 1993 Milwaukee Cryptosporidium
outbreak is a well-known example of water supply contamination that
resulted in 403,000 illnesses and approximately 100 deaths. The source
of the oocysts was not identified, but suspected sources include
agricultural runoff from dairies in the region, wastewater from a
slaughterhouse and meat packing plant, and municipal wastewater
treatment plant effluent (Casman, E.A., Interstate Commission on the
Potomac River Basin Report No. 96-6, 1996; USDA National Animal Health
Monitoring System Report: Cryptosporidium parvum Outbreak, 1993). In
addition, Cryptosporidium was the known cause of 15 other outbreaks
associated with drinking and recreational water affecting 5,040
individuals in the U.S. between 1991 and 1994 (Gibson, C.J.,
Parasitology 117 (Supp.): S205-S212, 1998). While many of the reported
outbreaks have occurred through the consumption of contaminated
drinking water, other incidences of E. coli O157:H7 infection from
exposure to surface waters have been documented (CDC Morbidity and
Mortality Weekly Report, 2000, 2002). While non-human sources are
capable of transmitting pathogens that can cause the specific kinds of
gastrointestinal illness identified in EPA's original epidemiological
studies, the specific risk from these sources has not been fully
determined.
The risk presented by fecal contamination of waters by non-human
sources is possibly less significant than the risk presented by fecal
contamination of waters by human sources. However, the increasing
number of cases such as those described above, in which animals are
suspected as being the likely cause of the contamination and resulting
illness, present a case for not exempting these sources where human
contact or consumption are likely to occur. In addition, because the
presence of bacterial indicators provides evidence of fecal pollution,
high levels of these indicator organisms originating from animal
sources may also indicate the presence of pathogens capable of causing
other human illnesses in addition to acute gastroenteritis.
Animals are more likely to carry or be infected with human
pathogens when those animals are in close proximity to humans and their
waste. The closer the association between animals and humans, the more
likely it is that human pathogens will pass back and forth between
humans and animals. The
[[Page 41731]]
more crowded an animal herd, the more likely it is that human pathogens
will be shared between animals of the herd. These pathogens are
transmitted to others in the herd because of the direct contact between
animals and their fecal matter. Fecal contamination from these infected
herds, unless sufficiently treated or contained, can find its way into
surface or ground waters and present a potential exposure route for
people using the contaminated waters for recreation or drinking. This
scenario potentially applies not only to animal feeding operations but
also to herds of wildlife (e.g., deer). However, the threat from
livestock herds is likely to be greater given the larger typical herd
size and the resultant greater quantity of fecal wastes. Wild herds are
typically more dispersed and smaller and therefore likely represent a
smaller risk to watersheds. In addition, wildlife are not typically in
routine daily contact with humans, as may be the case for livestock and
other domestic animals. Therefore, EPA is considering a third approach
for addressing non-human sources of fecal contamination in establishing
water quality standards that apply the criteria only to bacteria from
human and non-wildlife animal sources.
In summary, the preceding paragraphs describe three possible
approaches in reviewing exemptions for non-human sources of fecal
contamination:
(1) Require sanitary and epidemiological studies before excluding
non-human sources;
(2) Require only sanitary surveys before excluding non-human
sources; or
(3) Exclude only wildlife sources.
EPA is soliciting comment on all of the above approaches. Should
EPA revise its approach in the final rule addressing non-human sources
of E. coli and enterococci, States and Territories that exempt non-
human sources and are included in today's proposal may not be included
in the final rule.
5. Has EPA Approved the Standards?
Under section 303(i)(2)(A) of the CWA, EPA must determine whether a
State or Territory has failed to adopt water quality standards as
protective of human health as EPA's 1986 bacteria criteria. Moreover,
under 40 CFR 131.21, EPA must approve State or Territorial water
quality standards that are adopted after May 30, 2000, in order for
those standards to be in effect for CWA purposes. Therefore, EPA must
have approved State and Territorial standards for enterococci or E.
coli that are consistent with CWA section 303(i) for the State or
Territory to be excluded from the proposed rule if the standards were
adopted after May 30, 2000. State and Territorial standards adopted
prior to May 30, 2000 that are consistent with CWA section 303(i) are
in effect for CWA purposes even without explicit EPA approval.
B. Which States and Territories Are Included in Today's Proposed Rule?
EPA researched the status of water quality standards for bacteria
for each State and Territory with coastal recreation waters. On April
20, 2004, EPA sent letters to the Commissioners of every coastal and
Great Lakes State and Territory to inform them of this impending
proposed rule and of EPA's understanding at that time of their water
quality standards. These letters stated that EPA would propose to
include in this rule all States and Territories with coastal recreation
waters (i.e., those coastal and Great Lakes waters designated for
swimming, bathing, surfing and similar water contact activities) that
do not have CWA-effective water quality standards for pathogen
indicators as protective of human health as EPA's 1986 bacteria
criteria. In preparing these letters, EPA conducted a preliminary
review of the water quality standards of the thirty-five States and
Territories with coastal recreation waters. In some cases, EPA has
received additional or updated information since sending the letters.
EPA's current understanding of each State's and Territory's water
quality standards is reflected in the discussion in this section. EPA
solicits comment to confirm whether EPA has accurately characterized
the current status of water quality standards for coastal recreation
waters, and seeks information on the progress of States' and
Territories' adoption of the E. coli and enterococci criteria.
Alabama
On April 20, 2004, Alabama adopted criteria for all of its coastal
recreation waters consistent with EPA's 1986 bacteria criteria, and EPA
approved these on June 25, 2004. The criteria are for enterococci and
have a geometric mean of 35/100 ml and an SSM of 104 for coastal waters
designated by Alabama as ``Outstanding Alabama Waters'', ``Swimming'',
and ``Shellfish Harvesting''. Waters designated by Alabama as ``Public
Water Supply'' and ``Fish and Wildlife'' include water contact sports
as a use only from June through September. The enterococci criteria for
those months have a geometric mean of 35/100 ml and an SSM of 158/100
ml. From October through May, Public Water Supply and Fish and Wildlife
waters are not designated for recreation. EPA considers these criteria
to be as protective of human health as EPA's 1986 bacteria criteria and
Alabama is therefore not included in this proposal.
Alaska
Alaska has not adopted criteria as protective of human health as
EPA's 1986 bacteria criteria. Therefore, EPA is including Alaska in
today's proposal. Alaska has notified EPA of the State's intention to
initiate rulemaking to adopt criteria consistent with EPA's 1986
bacteria criteria by taking public comment in Summer 2004. The State
anticipates adoption of the criteria into State water quality standards
by December, 2004.
American Samoa
On November 16, 1999, American Samoa adopted criteria for all of
its coastal recreation waters consistent with EPA's 1986 bacteria
criteria, and EPA approved these on May 2, 2001. The criteria are for
enterococci with a geometric mean of 35/100 ml and an SSM value of 104/
100 ml for Pago Pago Harbor, Fagatele Bay, and Pala Lagoon; the
criteria have a geometric mean of 35/100 ml and an SSM value of 124/100
ml for open coastal waters; and the criteria have a geometric mean of
35/100 ml and an SSM value of 276/100 ml for those ocean waters beyond
the 600-foot depth contour seaward. EPA considers these criteria to be
as protective of human health as EPA's 1986 bacteria criteria, and
American Samoa is therefore not included in this proposal.
California
California has adopted criteria consistent with EPA's 1986 bacteria
criteria for some but not all of its coastal recreation waters. The Los
Angeles Regional Board (RB4) adopted criteria on July 18, 2002, and EPA
approved them on September 25, 2002. The RB4 criteria are for
enterococci and have a geometric mean of 35/100 ml and an SSM of 104/
100 ml. The other Regional Boards with coastal recreation waters have
not yet adopted bacteria criteria as protective of human health as
EPA's 1986 bacteria criteria. The California Ocean Plan, which was
adopted on March 22, 1990, applies enterococcus monitoring requirements
to nearshore ocean waters; however, it does not establish State water
quality criteria. State Health Regulations adopted by the State
pursuant to Assembly Bill 411 apply enterococcus requirements to all
coastal waters; however, these regulations are separate from State
water quality standards. Therefore, EPA is including California in
today's proposal,
[[Page 41732]]
except for waters covered by RB4's approved standards.
Commonwealth of Northern Mariana Islands
The Commonwealth adopted a geometric mean criterion for enterococci
on January 20, 1997, and EPA approved it on February 3, 1997. However,
the Commonwealth has not adopted SSM values. Therefore, EPA is
including the Commonwealth in today's proposal but only with respect to
the SSM portion of the rule. EPA could remove the Commonwealth from the
final rule depending on which SSM option EPA chooses in the final rule.
The Commonwealth has initiated the rule-making process to adopt SSM
values. The Commonwealth published the amendment to the standards in
the Commonwealth Register on April 23, 2004, and the amendment is
scheduled to be adopted before September, 2004.
Connecticut
On November 7, 2001, Connecticut adopted criteria for all of its
coastal recreation waters consistent with EPA's 1986 bacteria criteria,
and EPA approved these on December 17, 2002. Connecticut's enterococci
criteria include a geometric mean of 35/100 ml and an SSM of 104/100 ml
for ``Designated Swimming'' waters, which include areas designated by
state or local authorities as bathing areas, and a geometric mean of
35/100 ml and an SSM of 500/100 ml for ``All Other Recreational Uses'',
which are applied to other coastal waters (see Connecticut Water
Quality Standards, Appendix B). The Connecticut water quality standards
include General Standards 8 and 25, which include special additional
provisions regarding application of Connecticut standards. Standard 8
provides that water quality criteria do not apply to conditions brought
about by natural causes which may include normal land uses. Standard 25
provides that exceedance of bacteria criteria should be investigated by
means of a sanitary survey or other appropriate means to determine
sources of elevated indicator bacteria levels. In practice, Connecticut
uses the numeric criteria established for enterococci in Appendix B of
the Connecticut WQS regardless of source in coastal recreation waters
for CWA purposes. For example, Connecticut's 2002 CWA section 303(d)
list includes waters that are impaired due to bacteria from nonpoint
sources and waterfowl. EPA considers these criteria to be as protective
of human health as EPA's 1986 bacteria criteria, and Connecticut is
therefore not included in this proposal.
Delaware
Delaware adopted enterococci criteria on July 15, 1999, and EPA
approved these on December 2, 1999. Delaware's CWA-effective standards
include criteria for enterococci with a geometric mean of 10/100 ml but
no corresponding SSM. In addition, the Delaware standards apply only to
human sources of fecal contamination. Therefore, EPA is including
Delaware in today's proposal. EPA could remove Delaware from the final
rule depending on which SSM option and which nonhuman source option EPA
chooses in the final rule. Delaware is in the process of adopting and
submitting to EPA revised standards for bacteria.
Florida
Florida has not yet adopted criteria consistent with EPA's 1986
bacteria criteria. Therefore, EPA is including Florida in today's
proposal. Florida has initiated internal discussions and the State
plans to initiate adoption of criteria consistent with EPA's 1986
bacteria criteria this year.
Georgia
Georgia has not yet adopted criteria consistent with EPA's
criteria, nor has it initiated any regulatory process to adopt water
quality standards consistent with EPA's bacteria criteria. Therefore,
EPA is including Georgia in today's proposal.
Guam
On June 18, 2002, Guam adopted criteria for all of its coastal
recreation waters consistent with EPA's 1986 bacteria criteria, and EPA
approved these on July 24, 2002. The criteria are for enterococci and
have a geometric mean of 35/100 ml for all marine waters. The SSM is
104/100 ml for whole body contact recreation waters and is 276/100 ml
for limited body contact recreation. EPA considers these criteria to be
as protective of human health as EPA's 1986 bacteria criteria and Guam
is therefore not included in this proposal.
Hawaii
Hawaii has adopted criteria consistent with EPA's 1986 bacteria
criteria for some but not all of its coastal recreation waters. Hawaii
has adopted, and EPA has approved, a geometric mean criterion of 7 for
enterococci in non-estuarine marine recreational waters within 300
meters (1,000 feet) of the shoreline. Hawaii is in the process of
adopting an SSM criterion for non-estuarine marine waters within 300
meters of shore and both components of the enterococci criteria for
coastal estuaries, consistent with EPA's 1986 bacteria criteria. Hawaii
has no numeric criteria protecting State waters beyond 300 meters from
shore, although these waters are designated for recreation in the
State's water quality standards. Therefore, EPA is including Hawaii in
this proposal.
Illinois
Illinois has not yet adopted criteria consistent with EPA's 1986
bacteria criteria. Therefore, EPA is including Illinois in today's
proposal. Illinois has informed EPA that it will initiate the
rulemaking process to adopt revised standards for bacteria by September
30, 2004.
Indiana
On December 13, 1989, Indiana adopted criteria for all of its
coastal recreation waters consistent with EPA's 1986 bacteria criteria,
and EPA approved these on May 7, 1990. The criteria are for E. coli and
include a geometric mean of 125/100 ml and an SSM of 235/100 ml. EPA
considers these criteria to be as protective of human health as EPA's
1986 bacteria criteria, and therefore Indiana is not included in this
proposal.
Louisiana
Louisiana has not yet adopted criteria consistent with EPA's 1986
bacteria criteria, nor has the State initiated any regulatory process
to meet BEACH Act requirements. Therefore, EPA is including Louisiana
in today's proposal.
Maine
Maine made effective enterococci criteria for its coastal
recreation waters classified as ``SB'' and ``SC'', and EPA approved
these criteria on July 16, 1986. The enterococci criteria include a
geometric mean of 8/100 ml and a single sample maximum of 54/100 ml in
the State's waters classified as ``SB.'' Class ``SB'' waters are those
that are ``suitable for the designated uses of recreation in and on the
water'' as well as other uses. (ME. REV. STAT. ANN. tit. 38 Sec. 465-B
(2003)). Additionally, the enterococci criteria include a geometric
mean of 14/100 ml and an SSM of 94/100 ml for the State's waters
classified as ``SC.'' Class ``SC'' waters are also those that are ``of
such quality that they are suitable for recreation in and on the
water'' as well as other uses. (ME. REV. STAT. ANN. tit. 38 Sec. 465-B
(2003)). Although Maine's criteria numbers are lower than EPA's,
Maine's criteria pertain only to enterococci of human origin. Based on
the non-human source discussion in Section IV.A.4. of this preamble,
EPA does not believe that Maine's criteria would be as protective of
human health as EPA's 1986 bacteria criteria in cases
[[Page 41733]]
where the enterococci are of non-human origin. The 1986 bacteria
criteria document recommends that States and Territories apply the E.
coli and enterococci criteria to all full body contact recreation
waters unless both (1) sanitary and epidemiological studies show the
sources of the indicator bacteria to be non-human, and (2) the
indicator densities are not indicative of a health risk to those
swimming in such waters. EPA recognizes that Maine's approach for
addressing non-human pathogen sources is consistent with an option for
addressing recreational uses that is included in EPA's 1994 Water
Quality Standards Handbook, and Maine is cited in this document as an
example of a State that has successfully implemented such an approach.
When EPA approved the Maine pathogen standards in 1986, it did so using
the requirements of 40 CFR 131.5 and 131.6, which requires water
quality criteria be sufficient to protect the designated uses. However,
the BEACH Act of 2000 added CWA section 303(i) which requires that the
pathogen criteria be ``as protective of human health as'' EPA's 1986
bacteria criteria document. This is a different standard of review than
articulated in 40 CFR 131.5 for other water quality standards. Based on
the comparison of Maine's approach for nonhuman sources to that in
EPA's 1986 bacteria criteria document, and using its proposed non-human
source option, EPA does not find Maine's approach to be ``as protective
of human health as'' EPA's bacteria criteria document. Therefore, EPA
is proposing to include Maine in today's rule for limited purposes. EPA
could remove Maine's SB and SC waters from the final rule depending on
which nonhuman source option EPA chooses in the final rule. EPA is
aware that independent of this proposed rule, it is Maine's intent to
revise the applicability of its bacteria criteria to include
enteroccoci from domestic animals as well as enterococci of human
origin. This revision is expected during Maine's next legislative
session in January 2005.
EPA's proposed criteria would not apply to Maine's SB and SC waters
if the enterococci bacteria are of human origin. In these cases,
Maine's criteria would apply. Should EPA receive information during the
public comment period showing that there are only human sources of
fecal contamination in Maine Class SB and SC coastal recreation waters,
EPA would remove Maine from the promulgation of the final rule for
Class SB and SC waters because Maine's criteria would apply to all
sources of enterococci to coastal recreation waters.
Maine also has as its most protective class, ``SA'' waters. Class
SA ``shall be the highest classification and shall be applied to waters
which are outstanding natural resources'' and ``shall be of such
quality that they are suitable for designated uses of recreation in and
on the waters'' as well as other uses. (ME. REV. STAT. ANN. tit. 38
Sec. 465-B (2003). The bacteria content of Class SA waters ``shall be
as naturally occurs.'' EPA believes that this narrative criterion for
bacteria--``as naturally occurs''--is consistent with the objective of
the CWA at Section 101(a) to ``restore and maintain the chemical,
physical, and biological integrity of the Nation's waters.'' Naturally
occurring bacteria levels should not present more risk than the 19
illnesses per 1000 swimmers accepted in the 1986 bacteria criteria
document. Although storm water discharges to Class SA waters are
allowed, EPA understands Maine's standards to not authorize storm water
discharges that exceed bacteria levels that would otherwise occur
naturally in the receiving water absent the storm water discharges. For
these reasons, EPA is not including Maine's Class SA waters in today's
proposal.
Maryland
Maryland has not yet adopted criteria consistent with EPA's 1986
bacteria criteria. Therefore, EPA is including Maryland in today's
proposal. Maryland is completing its rulemaking process and expects to
submit newly adopted criteria to EPA in the near future. Maryland has
been working with EPA to assure the development of state water quality
standards that are consistent with EPA's 1986 bacteria criteria.
Massachusetts
Massachusetts has not yet adopted criteria consistent with EPA's
1986 bacteria criteria. Therefore, EPA is including Massachusetts in
today's proposal. Massachusetts has initiated the rulemaking process
and expects to adopt criteria consistent with EPA's 1986 bacteria
criteria by December 31, 2004.
Michigan
On May 20, 1994, Michigan adopted criteria for all of its coastal
recreation waters consistent with EPA's 1986 bacteria criteria, and EPA
approved these on August 11, 1994. The State standards include E. coli
with a geometric mean of 130/100 ml and an SSM value of 300/100 ml for
total body contact recreation and an SSM of 1000/100 ml for partial
body contact recreation. Michigan's criteria are considered to be
within the acceptable risk level range of 0.8% to 1.0%. (This range was
described in Section IV.A.2.). Therefore, EPA interpreted Michigan's E.
coli geometric mean of 130/100 ml to be as protective of human health
as EPA's 1986 bacteria criteria, which recommended a geometric mean of
126/100 ml. EPA considers these criteria to be as protective of human
health as EPA's 1986 bacteria criteria, and Michigan is therefore not
included in this proposal.
Minnesota
Minnesota has not yet adopted criteria consistent with EPA's 1986
bacteria criteria. Therefore, EPA is including Minnesota in today's
proposal. Minnesota has initiated the rulemaking process and expects to
adopt criteria consistent with EPA's 1986 bacteria criteria by July
2005.
Mississippi
Mississippi has not yet adopted criteria consistent with EPA's 1986
bacteria criteria. Therefore, EPA is including Mississippi in today's
proposal. Mississippi has initiated internal discussions and expects to
adopt a geometric mean criterion by August 2004. The State will be
conducting beach user studies in the summer of 2004 to determine the
appropriate SSM based on usage of certain areas and expects to adopt
SSM criteria by August 2005.
New Hampshire
On July 2, 1991, New Hampshire adopted EPA's 1986 bacteria criteria
for all of its coastal recreation waters and the criteria became
effective for CWA purposes on August 31, 1991. The standards include
enterococci and have a geometric mean of 35/100 ml and an SSM of 104/
100 ml for all coastal recreation waters. EPA considers these criteria
to be as protective of human health as EPA's 1986 bacteria criteria,
and New Hampshire is therefore not included in this proposal.
New Jersey
On July 14, 1989, New Jersey adopted criteria for all of its
coastal recreation waters consistent with EPA's 1986 bacteria criteria,
and EPA approved these on April 23, 1991. New Jersey's bacteria
criteria include enterococci and have a geometric mean of 35/100 ml and
an SSM of 104/100 ml for all coastal recreation waters. For the
Delaware Bay, New Jersey incorporates by reference the water quality
standards adopted by the Delaware River Basin Commission (DRBC)
(N.J.A.C. 7:9B-1.13). The DRBC
[[Page 41734]]
adopted enterococci criteria with a geometric mean of 35/100 ml, but no
SSM, for the Delaware Bay. However, New Jersey's standards include a
provision that applies New Jersey water quality criteria to the
Delaware Bay if the DRBC has not established criteria (N.J.A.C. 7:9B-
1.14(d)). Therefore, New Jersey's water quality standards include an
SSM that applies to the Delaware Bay in the absence of an SSM in the
DRBC's standards, as explained in a May 19, 2004, letter from Brad
Campbell, Commissioner of the New Jersey Department of Environmental
Protection to Ben Grumbles, Acting Assistant Administrator for Water,
U.S. EPA. EPA considers New Jersey's criteria to be as protective of
human health as EPA's 1986 bacteria criteria, and New Jersey is
therefore not included in this proposal.
New York
New York has not yet adopted criteria consistent with EPA's 1986
bacteria criteria. Therefore, EPA is including New York in today's
proposal. New York has informed EPA that it will initiate its
rulemaking process to adopt revised standards for bacteria shortly. The
State anticipates final adoption of revised bacteria criteria in 2005.
North Carolina
North Carolina has not yet adopted criteria consistent with EPA's
1986 bacteria criteria. Therefore, EPA is including North Carolina in
today's proposal. The State has started internal discussions and has
exchanged draft language with EPA.
Ohio
Ohio has adopted a geometric mean consistent with EPA's 1986
bacteria criteria for all waters in Lake Erie in addition to fecal
coliform standards. Ohio had previously adopted fecal coliform as its
recreational water quality criteria. The standards for E. coli include
a geometric mean of 126/100 ml for designated bathing waters and for
designated primary contact waters. However, the Ohio water quality
standards allow the use of either E. coli or fecal coliform and specify
that compliance with the criteria can be demonstrated by attainment of
either criterion. Because Ohio's standards allow the use of either
indicator, and fecal coliform is not as protective of human health as
EPA's 1986 bacteria criteria, EPA is including Ohio in today's
proposal. In addition, EPA is including Ohio in today's proposal
because the State does not have an SSM, as EPA interprets the term (see
Section III.B.1). Instead, Ohio's standards include E. coli values not
to be exceeded in more than ten percent of the samples taken during any
thirty-day period: 235/100 ml for designated bathing waters and 298/100
ml for designated primary contact waters. These values are identical to
EPA's SSM values for the 75 and 82 percent confidence levels
respectively, but they are not expressed as SSMs because they allow 10
percent of the samples to exceed the SSM.
Should EPA receive information during the public comment period
showing that Ohio applies its E. coli criterion for all Clean Water Act
implementation purposes in Lake Erie, and applies its upper bound
values in a manner as stringent as the approach EPA takes for the SSM
in the final rule, EPA would remove Ohio from the final rule.
Oregon
Oregon has not yet adopted criteria consistent with EPA's 1986
bacteria criteria, nor has the State initiated any regulatory process
to meet the BEACH Act requirements. Therefore, EPA is including Oregon
in today's proposal.
Pennsylvania
Pennsylvania has not yet adopted criteria consistent with EPA's
1986 bacteria criteria. Pennsylvania has initiated a modification to
its Department of Health regulations relating to the bacteriological
standards and monitoring of its Great Lake public bathing beaches but
has not yet submitted any revision of its water quality standards to
EPA. Therefore, EPA is including Pennsylvania in today's proposal.
Puerto Rico
The Commonwealth of Puerto Rico's water quality criteria for
recreational waters applies to those Class SB (coastal) waters which
are intensely used for primary contact recreation, like special bathing
zones (beaches), and the Class SC waters for which EPA recently
completed a rulemaking (40 CFR 131.40) to establish a designated use
and applicable water quality criteria (including the 1986 bacteria
criteria for enterococci) to protect primary contact recreation. The
remaining Class SB waters, which are not designated bathing beaches but
are coastal recreation waters, do not have bacteria criteria as
protective of human health as EPA's 1986 bacteria criteria. Therefore,
EPA is including Puerto Rico, except for coastal recreation waters
intensely used for primary contact recreation and those covered by the
recent EPA rule, in today's proposal. Puerto Rico has informed EPA of
its intent to adopt criteria consistent with EPA's 1986 bacteria
criteria for the remaining Class SB waters.
Rhode Island
Rhode Island has not yet adopted criteria consistent with EPA's
1986 bacteria criteria. Therefore, EPA is including Rhode Island in
today's proposal. Rhode Island has informed EPA of its intent to adopt
criteria consistent with EPA's 1986 bacteria criteria and has initiated
the rulemaking process. Rhode Island plans to adopt EPA's criteria by
the end of 2004.
South Carolina
South Carolina has not yet adopted criteria consistent with EPA's
1986 bacteria criteria. Therefore, EPA is including South Carolina in
today's proposal. South Carolina has initiated the rulemaking process
and expects to adopt EPA's criteria or submit them for EPA review by
July 2004.
Texas
On July 26, 2000, Texas adopted criteria for all of its coastal
recreation waters consistent with EPA's 1986 bacteria criteria, and EPA
approved these on June 30, 2004. Texas' bacteria criteria include
enterococci and have a geometric mean of 35/100 ml and an SSM of 89/100
ml for all coastal recreation waters. The water quality standards also
include criteria for fecal coliform. Kathleen Hartnett White, Chair of
the Texas Commission on Environmental Quality, sent two letters dated
June 16 and June 29, 2004, explaining Texas' interpretation of the
State's standards. Ms. White acknowledged that, under these revised
standards, Texas has discretion to use fecal coliform as an alternative
recreational indicator. At the time Texas adopted these standards, in
2000, it included this discretion for three reasons: (1) Texas wanted
time to transition from monitoring for fecal coliform to enterococci
for waters designated for contact recreation; (2) Texas was concerned
about monitoring resources and laboratory equipment needed to sustain
monitoring for both enterococci and fecal coliform in Oyster Waters,
and (3) Texas wanted to allow for the possibility that additional data
and evaluation of the two indicators would show that the Oyster Water
criterion for fecal coliform would be a protective surrogate for
enterococci. Ms. White also explained in her June 2004 letters that
currently the State is monitoring for enterococci in all of its coastal
recreation waters, including Oyster Waters. In addition, she expressly
recognized that, at this time, the relationship between fecal coliform
[[Page 41735]]
and enterococci has not been demonstrated for Texas coastal waters.
Finally, in the letter of June 29, 2004, Texas explicitly states that
the enterococci criteria are in effect for all CWA purposes for all
coastal recreation waters, including those designated as Oyster Waters.
With this additional information, EPA considers enterococci to be the
applicable criteria in all of Texas' coastal recreation waters for all
CWA purposes. EPA considers these criteria to be as protective of human
health as EPA's bacteria criteria, and Texas is therefore not included
in this proposal.
United States Virgin Islands
The Virgin Islands have not yet adopted criteria consistent with
EPA's 1986 bacteria criteria. Therefore, EPA is including the Virgin
Islands in today's proposal. The Virgin Islands have initiated the
rulemaking process and expect to adopt EPA's criteria by September 30,
2004.
Virginia
On February 12, 2002, Virginia adopted EPA's 1986 bacteria criteria
for all of its coastal recreation waters, and EPA approved these on
November 8, 2002. The standards include enterococci and have a
geometric mean of 35/100 ml for all coastal waters and an SSM value of
104/100 ml. The standards also have fecal coliform for shellfish waters
in addition to enterococci. EPA considers the enterococci criteria to
be as protective of human health as EPA's 1986 bacteria criteria, and
Virginia is therefore not included in this proposal.
Washington
Washington has not yet adopted criteria consistent with EPA's 1986
bacteria criteria. In a letter dated May 11, 2004, Washington explained
its view that the State's data show that where the geometric mean of
fecal coliform concentrations are at or below 14 counts/100 ml, the
corresponding geometric mean of enterococci bacteria are at or below
EPA's 1986 marine criterion of 35 counts/100 ml. EPA is reviewing this
information and requests comment on it. The data submitted by
Washington are available in the official public docket for this
rulemaking. Because EPA has not yet determined that the data
demonstrate that Washington's standards satisfy the requirements of
section 303(i), EPA is including Washington in today's proposal.
Wisconsin
Wisconsin has not yet adopted criteria consistent with EPA's 1986
bacteria criteria. Therefore, EPA is including Wisconsin in today's
proposal. Wisconsin has initiated the rulemaking process and intends to
adopt criteria consistent with EPA's bacteria criteria by winter 2005-
2006.
Tribes
No Tribes are included in this proposal. EPA has determined there
are about 40 Federally-recognized Tribes located next to either coastal
or Great Lakes waters. As of the date of this proposal, none of these
Tribes have coastal recreation waters (i.e., coastal or Great Lakes
waters designated for swimming, bathing, surfing or similar water
contact activities). EPA is not including these Tribes in today's
proposal because the requirements of CWA section 303(i) only apply to
coastal recreation waters. EPA recognizes that the criteria in today's
proposal will help inform Agency decisions related to its review of
current and future Tribal water quality standards submissions to EPA.
EPA has contacted those Tribes identified as having coastal or Great
Lakes waters to inform them of the potential future impact this
proposal could have on Tribal waters. EPA solicits comment on its
interpretation of CWA section 303(i) as it applies to coastal Tribal
waters that have not been designated for swimming, bathing, surfing, or
similar water contact activities.
C. Under What Conditions Will States and Territories Be Removed From a
Final Rule?
As discussed in Section II of this preamble, the water quality
standards program has been established with an emphasis on State
primacy. Although this proposed rule has been developed to promulgate
Federal bacteria criteria for certain States and Territories, EPA
prefers that States and Territories maintain primacy and revise their
own standards to meet CWA sections 303(c) and 303(i) requirements. EPA
is hopeful that today's proposed rulemaking will provide additional
impetus for States and Territories to adopt the criteria for bacteria
necessary to comply with CWA section 303(i).
For States and Territories that adopt criteria that EPA approves as
meeting CWA section 303(i) requirements before publication of the final
rulemaking, EPA will not include them in the final rulemaking. At any
point in the process prior to final promulgation, a State or Territory
can ensure that it will not be affected by this action by adopting the
necessary criteria pursuant to State or Territorial law and receiving
EPA approval. EPA will make every effort to issue timely approval of
revised criteria submitted before promulgation of the final rule.
Following a final promulgation of this rule, removal of Federal
standards for a State or Territory will require rulemaking by EPA
according to the requirements of the Administrative Procedure Act (5
U.S.C. 551 et seq.). When a State or Territory adopts standards as
protective of human health as EPA's 1986 bacteria criteria, EPA will
undertake such a rulemaking to withdraw the Federal criteria. However,
as discussed in Section III.C.1, EPA is proposing that State and
Territorial standards for bacteria approved by EPA pursuant to CWA
sections 303(c) and 303(i) will be in effect for CWA purposes, and the
Federal criteria for this rule will no longer apply even before EPA
withdraws the Federal criteria for that State or Territory.
V. Alternative Regulatory Approaches and Implementation Mechanisms
In developing a final rule, EPA will consider any data or
information submitted to the Agency during the comment period. However,
it is possible that relevant information for particular coastal
recreation waters covered by this proposed rule may become available
after completion of this rulemaking. If EPA ultimately promulgates a
Federal E. coli and enterococci criteria for coastal recreation waters
for some or all of the States and Territories covered by this proposal,
there are several ways to ensure that the primary contact recreation
use and its implementing mechanisms appropriately take into account
such future information.
A. Designating Uses
States and Territories have considerable discretion in designating
uses. A State or Territory may find that changes in use designations
are warranted. EPA will review any new or revised use designations
adopted by the States or Territories for coastal recreation waters
covered by this proposed rule to determine if the standards meet the
requirements of the CWA and implementing regulations. In adopting
recreation uses, the States and Territories may wish to consider
additional categories of recreation uses. If States and Territories
change the designated use of a waterbody consistent with CWA section
303(c) and the regulations at 40 CFR 131, such that they are no longer
designated for swimming, bathing, surfing, or similar water contact
activities then the waterbody would not be covered by the BEACH Act
definition of ``coastal recreation waters''.
[[Page 41736]]
EPA reminds the States and Territories that they must conduct use
attainability analyses as required by 40 CFR 131.10(g) when adopting
water quality standards with uses not specified in CWA section
101(a)(2) or with subcategories of designated uses specified in CWA
section 101(a)(2) that require less stringent criteria (see 40 CFR
131.10(j)).
B. Compliance Schedules
A compliance schedule refers to an enforceable sequence of interim
requirements in a permit leading to ultimate compliance with water
quality-based effluent limitations (WQBELs) in accordance with the CWA.
In an NPDES permit, WQBELs are the value determined by selecting the
most stringent of the effluent limits calculated using all applicable
water quality criteria for a specific point source to a specific
receiving water for a given pollutant (See NPDES Permit Writers Manual,
EPA-833-B-96-003, December, 1996).
Although many States and Territories have adopted regulations that
are effective for CWA purposes authorizing compliance schedules for
WQBELs, some have not done so. Therefore, EPA is proposing that where a
State or Territory does not have a regulation that is in effect for CWA
purposes authorizing compliance schedules for WQBELs, this proposed
rule would authorize, but would not require, the permit issuing
authority to include such compliance schedules in permits under
appropriate circumstances. If a State or Territory does have a
regulation that is in effect for CWA purposes authorizing compliance
schedules, that compliance schedule regulation would continue to apply
and would not be affected by today's proposed rule. It may be that a
State or Territory that does not have a regulation authorizing
compliance schedules has chosen that it does not want such a
regulation. Thus, if a State or Territory notifies EPA in writing prior
to promulgation that it does not want to authorize compliance schedules
in permits implementing the bacteria criteria, then EPA would exclude
that State or Territory from the compliance schedule provision
contained in the final rule. Deferring to each State's or Territory's
compliance schedule decisions would be consistent with the CWA's
approach of giving the States and Territories the primary authority
over water pollution control (CWA section 101(b)).
In States and Territories where this proposed rule's compliance
schedule provision would apply, the permitting authority authorized to
administer the National Pollutant Discharge Elimination System (NPDES)
program would exercise its discretion when deciding if a compliance
schedule is justified because of the technical or financial (or other)
infeasibility of immediate compliance. A provision authorizing
compliance schedules is included in today's proposed rule because of
the potential for existing dischargers to have new or more stringent
effluent limitations for which immediate compliance would not be
possible or practicable.
EPA supports the States and Territories in adopting statewide
provisions independent of or as part of their effort to readopt
statewide water quality control plans, or in adopting individual basin-
wide compliance schedule provisions. The States and Territories have
broad discretion to adopt such provisions, including discretion on
reasonable lengths of time for final compliance with WQBELs. EPA
recognizes that practical time frames within which to set interim goals
may be necessary to achieve meaningful, long-term improvements in water
quality.
New and Existing Pathogen Dischargers: The provision would allow
compliance schedules only for an ``existing pathogen discharger'' which
would be defined as any discharger which is not a ``new pathogen
discharger.'' EPA is proposing to define a ``new pathogen discharger''
as any building, structure, facility, or installation from which there
is or may be a discharge of pathogens, the construction of which
commenced after the effective date of the final rule. This definition
is modeled after the definition of a new Great Lakes discharger at 40
CFR 132.2 which EPA created to implement the compliance schedule
provision of 40 CFR Part 132 Appendix F, Procedure 9. The definition of
``new pathogen discharger'' only includes new sources if the new source
commences construction after the effective date of the final rule.
Other new sources that commence construction before the effective date
of the final rule would be treated as ``existing pathogen
dischargers.'' EPA solicits comment on the utility of these definitions
for implementing a compliance schedule for the proposed enterococci and
E. coli criteria in 40 CFR 131.41.
For ``existing pathogen dischargers'' whose permits are reissued or
modified to contain new or more stringent limitations based upon
certain water quality requirements, the permit could allow up to five
years to comply with such limitations. The provision would apply to new
or more stringent effluent limitations based on the criteria in this
proposed rule. EPA has included ``increasing dischargers'' within the
category of ``existing pathogen dischargers''' for purposes of this
rule since ``increasing dischargers'' are existing facilities with a
change--an increase--in their discharge. Such facilities may include
those with seasonal variations. ``Increasing dischargers'' will already
have treatment systems in place for their current discharge, thus, they
are constrained in the types of efficiencies they can gain from their
existing treatment system processes. In contrast, a new discharger can
design and build a new treatment system which most efficiently will
meet the new water quality-based requirements. Allowing existing
facilities with an increasing discharge a compliance schedule in
appropriate circumstances would avoid placing the discharger at a
competitive disadvantage vis-a-vis other existing dischargers who are
eligible for compliance schedules.
Today's proposed rule would not prohibit the use of a short-term
``shake down period'' for new pathogen dischargers as is provided for
new sources or new dischargers in 40 CFR 122.29(d)(4). These
regulations would require that the owner or operator of (1) a new
source; (2) a new discharger (as defined in 40 CFR 122.2) which
commenced discharge after August 13, 1979; or (3) a recommencing
discharger shall install and implement all pollution control equipment
to meet the conditions of the permit before discharging. The facility
would also be required to meet all permit conditions in the shortest
feasible time (not to exceed 90 days). This shake-down period is not a
compliance schedule, some types of facilities that are eligible for a
``shake down period'' may also be eligible for a compliance schedule if
they are existing pathogen dischargers. This approach would be used to
address violations which may occur during a new facility's start-up,
especially where permit limits are water quality-based and biological
treatment is involved.
The burden of proof to show the necessity of a compliance schedule
would be on the discharger, and the discharger would be required to
request approval from the permit issuing authority for a schedule of
compliance. The discharger should submit a description of the minimum
required actions or evaluations that must be undertaken in order to
comply with the new or more restrictive discharge limits. Dates of
completion for the required actions or evaluations should be included,
and the proposed schedule
[[Page 41737]]
should reflect the shortest practicable time to complete all minimum
required actions.
Duration of Compliance Schedules: Today's proposed rule would
provide that compliance schedules may provide for up to five years from
date of permit issuance, reissuance, or modification to meet new or
more stringent effluent limitations in those circumstances where the
permittee can demonstrate to the permit authority that an extended
schedule is warranted. EPA's regulations at 40 CFR 122.47 require
compliance with standards as soon as possible. This means that permit
authorities should not allow compliance schedules where the permittee
fails to demonstrate their necessity. This provision should not be
considered a default compliance schedule duration for all existing
facilities. In instances where dischargers find that their current
level of disinfection or other treatment is not sufficient to achieve
the E. coli or enterococci criterion, dischargers will need to increase
their current level of disinfection or evaluate and install new
treatment technology. EPA believes that five years is sufficient time
within which to complete this process.
Under this proposed rule, where a schedule of compliance exceeds
one year, interim requirements are to be specified and interim progress
reports would be required to be submitted at least annually to the
permit issuing authority.
The proposed rule would allow all compliance schedules to extend up
to a maximum duration of five years. Under the proposal, an existing
pathogen discharger may obtain a compliance schedule when the existing
permit for that discharge is issued, reissued or modified to contain
more stringent limits based on the water quality criteria in today's
proposed rule. Such compliance schedules, however, would not be able to
be extended indefinitely because the compliance schedule provision in
this rule limits the length of a compliance schedule for any facility
to a maximum of five years.
EPA recognizes that where a permit is modified during the permit
term, and the permittee needs the full five years to comply, the five-
year schedule may extend beyond the term of the modified permit. In
such cases, the rule allows for the modified permit to contain a
compliance schedule with an interim limit to be achieved by the end of
the permit term. When the permit is reissued, the permit authority may
extend the compliance schedule in the next permit, provided that,
taking into account the amount of time allowed under the previous
permit, the entire compliance schedule contained in the permit shall
not exceed five years. Final permit limits and compliance dates will be
included in the record for the permit. Final compliance dates for any
WQBEL must occur within five years from the date of permit issuance,
reissuance, or modification.
Antibacksliding: EPA wishes to address the potential concern over
antibacksliding where revised permit limits based on new information
are the result of the completion of additional studies. The Agency's
interpretation of the CWA is that the antibacksliding requirements of
section 402(o) of the CWA do not apply to revisions to effluent
limitations made before the scheduled date of compliance for those
limitations.
EPA is requesting comment on the setting and use of compliance
schedules to provide permitted dischargers time to meet their permit
effluent limitations based on today's proposed bacteria criteria.
Compliance schedules can be set as part of the water quality standard
or as part of the implementing regulations; in this specific case, the
standard is authorizing the use of compliance schedules in cases where
the permitting authority determines it would be appropriate. EPA is
interested in views concerning the duration of the schedule. Today's
proposal limits compliance schedules to a period not to exceed five
years. It also requires interim limits where the five year term exceeds
the length of time remaining in the permit after modification and
requires specific milestones and reporting on an annual basis. EPA is
interested in whether the limitation of five years for compliance
schedules is reasonable or should longer schedules be allowed for
certain permit activities that require extensive studies and
construction activities (e.g., long term control plans associated with
combined sewer overflows).
VI. Economic Analysis
These water quality standards may serve as a basis for development
of NPDES permit limits. Many of the affected jurisdictions (i.e.,
States and Territories) are the NPDES permitting authorities, which
retain considerable discretion in implementing standards. EPA evaluated
the potential costs to NPDES dischargers in affected jurisdictions
associated with future State and Territorial implementation of EPA's
Federal standards. This analysis is documented in ``Economic Analysis
for Proposed Water Quality Standards for Coastal Recreation Waters,'''
which can be found in the record for this rulemaking.
Any NPDES-permitted facility that discharges to water bodies
affected by this proposed rule could potentially incur costs to comply
with the rule's provisions. The types of affected facilities may
include industrial facilities and publicly owned treatment works
(POTWs) discharging sanitary wastewater to surface waters (i.e., point
sources). EPA addresses discharges of bacteria from municipal separate
storm sewer systems, combined sewer overflows (CSOs), and sanitary
sewer overflows (SSOs) to coastal waters in existing and anticipated
regulations and policies, and has tallied potential control costs as
part of analyses for these actions. Controls for these types of
discharges, which are not based on numeric limits are not likely to be
substantially affected by the revised indicators in the proposed rule,
at least in the near future. Therefore, to avoid double counting, EPA
did not estimate costs for such discharges for this rule. EPA did not
evaluate concentrated animal feeding operations (CAFOs) because section
301(a) of the CWA prohibits point sources, including CAFOs, from
discharging to surface waters without a permit (except in compliance
with CWA section 402 and other specified sections of the CWA), and
because NPDES permits for CAFOs in turn prohibit discharges except in
unusual circumstances (i.e., very large storms) that are unlikely to be
affected by the revised indicators. EPA does not have data to quantify
the effects of the proposed rule on total maximum daily loads for
pathogen-impaired waters. Finally, EPA did not evaluate the potential
for costs to nonpoint sources, such as agricultural runoff, and did not
attempt to quantify the potential benefits of the proposed rule.
EPA recognizes that a State or Territory may decide to require
controls for nonpoint sources (e.g., agricultural runoff) or point
source discharges (e.g., CSOs and SSOs) due to wet weather events.
However, as a technical matter, these sources are difficult to model
and evaluate with respect to potential costs impacts because they are
intermittent, highly variable, and occur under different hydrologic or
climatic conditions than continuous discharges from industrial and
municipal facilities, which EPA evaluates under critical low flow or
drought conditions. Also, data on instream and discharge levels of
bacteria after States have implemented controls to meet current water
quality standards based on fecal coliform are not available. Therefore,
trying to determine which sources would not achieve standards based on
E. coli or
[[Page 41738]]
enterococci after complying with existing regulations and policies may
not be possible, or would be extremely time and resource intensive.
Finally, it is likely that any controls needed to meet existing
standards (i.e., based on fecal coliform) would also address any water
quality problems indicated by standards based on E. coli or
enterococci.
A. Identifying Affected Facilities
EPA identified approximately 850 point source facilities from 28
States and Territories that may be affected by the proposed rule. Of
these potentially affected facilities, 362 are classified as major
dischargers, and 488 are minor dischargers. EPA did not include general
permit facilities in its analysis because data for such facilities are
extremely limited, and flows are usually negligible. Furthermore, EPA
could not determine if any of these facilities actually discharge to
the affected water bodies because location information is not available
in EPA's PCS database.
EPA assumed that only facilities located in jurisdictions included
in the proposed rule that discharge within 2 miles of coastal waters or
the Great Lakes may be affected. EPA identified these facilities by
relating facility information to the potentially affected waters using
GIS software. EPA also assumed that only wastewater treatment plants or
facilities with similar effluent characteristics (i.e., facilities
having the potential to discharge bacteria) would potentially be
affected by the proposed rule. For those facilities for which latitude/
longitude data are not included in PCS, EPA included only facilities
for which the receiving water body name in PCS indicates a coastal
water (e.g., Pacific Ocean, Lake Erie). Table 4 summarizes these
potentially affected facilities by type and category.
Table 4.--Potentially Affected Facilities \1\
----------------------------------------------------------------------------------------------------------------
Number of facilities
---------------------------------------
Category Minor Total
Major \2\ --------------------------
Municipal Other \3\
----------------------------------------------------------------------------------------------------------------
Coastal..................................................... 298 283 108 689
Great Lakes................................................. 64 76 21 161
--------------
Total................................................... 362 359 129 850
----------------------------------------------------------------------------------------------------------------
\1\ Facilities from States and Territories included in the proposed rule that discharge within two miles of
coastal waters or the Great Lakes.
\2\ No major industrial facilities are affected by the proposed rule. However, 6 other facilities (SIC codes
9711 and 9999) are included because their names indicate that they are wastewater treatment plants.
\3\ Includes the following SICs: Eating places (5812), drinking places (5813), operators of nonresidential
buildings (6512), operators of apartment buildings (6513), operators of dwellings other than apartment
buildings (6514), operators of residential mobile home sites (6515), hotels and motels (7011), recreational
vehicle parks and campsites (7033), organization hotels and lodging houses (7041), physical fitness facilities
(7991), amusement and recreation services (7999), skilled nursing care facilities (8051), general medical and
surgical hospitals (8062), elementary and secondary schools (8211), colleges, universities, and professional
schools (8221), civic, social, and fraternal associations (8641), private households (8811). Also includes the
following SICs if the facility name suggests that they may discharge sanitary waste: Operative builders
(1531), sanitary services, not elsewhere classified (4959), real estate agents and managers (6531), business
associations (8611), religious organizations (8661), services not elsewhere classified (8999), air and water
resource and solid waste management (9511), nonclassifiable establishments (9999).
B. Method for Estimating Potential Compliance Costs
To estimate costs, EPA evaluated the 15 major municipal facilities
with design flows greater than 120 mgd, thus ensuring that the
facilities with potential for the largest costs would be evaluated. For
the remaining facilities, EPA evaluated a sample of facilities to
represent discharger type and category.
The proposed standards are for the affected waters, and permitting
authorities have flexibility in implementing the criteria. Facilities
in some States that have adopted the 1986 criteria have effluent limits
for E. coli or enterococci, and in other such States, facilities do not
have bacteria limits. To be conservative (i.e., err on the side of
higher costs), EPA assumed that potentially affected facilities would
be required to meet both the applicable geometric mean and SSM
(although EPA's bacteria implementation guidance indicates that the
intent of the SSM value is not for permitting).
PCS does not contain E. coli or enterococci effluent data for any
of the sample facilities. Therefore, to evaluate potential costs
associated with the E. coli criteria, EPA assumed that 100% of the
fecal coliform measured is E. coli because E. coli is a type of fecal
coliform. EPA estimated that facilities with average monthly effluent
levels, based on the last 3 years of data, exceeding a geometric mean
of 126 fecal coliform/100 mL, or maximum daily levels exceeding 235
fecal colonies/100 mL, would need treatment controls to meet potential
permit limits based on the proposed criteria.
Enterococci are fecal bacteria in the fecal streptococcus group,
and their relationship to fecal coliform bacteria is uncertain.
Therefore, for coastal facilities, EPA used data and information in the
literature regarding the ratio of fecal coliform to enterococci in
untreated sewage, and the inactivation of both of these bacteria at
minimum disinfection levels, to identify the concentrations of fecal
coliform that may indicate a need for controls. Data in the literature
indicate that the ratio of fecal coliform to fecal streptococcus in
untreated sewage ranges from about 4 to 28. EPA used the most
conservative (i.e., erring on the side of overestimating costs) ratio
of 4 (i.e., fecal coliform levels are 4 times fecal streptococcus
levels) to estimate the fecal coliform levels at which facilities would
need treatment to comply with the proposed enterococci criteria. Again,
EPA compared fecal coliform levels over the last three years to both
the proposed geometric mean and SSM enterococci criteria values.
Experiences from facilities currently meeting the proposed E. coli
and enterococci criteria, as well as the current fecal coliform
criteria, suggest that chlorination processes can be upgraded or
adjusted to produce the levels of bacteria necessary for compliance
with the proposed rule. Therefore, EPA estimated that optimization of
existing disinfection processes would enable the sample facilities to
comply with the proposed rule. Process optimization usually involves
process analysis and process modifications, and EPA's cost estimates
include both capital and operating and maintenance costs.
[[Page 41739]]
C. Results
Based on the potential costs for the 15 facilities with flows
greater than 120 mgd, and extrapolating costs for a sample of 60
facilities to the remaining 835 facilities potentially affected by the
proposed rule, EPA estimated a total annual cost of approximately $22
million ($15 million for coastal facilities, and $7 million for Great
Lakes facilities). EPA estimates that approximately 110 major and 30
minor permittees could incur control costs as a result of modified
permits to comply with the revised criteria. However, this estimate is
considered conservative because it is based on assumptions regarding
how States and Territorial will implement the proposed standards that
may overstate the actual cost impacts and two States (Alabama and
Texas) included in EPA's cost analysis are not part of today's proposed
rule.VII.
Statutory and Executive Order Reviews
A. Executive Order 12866: Regulatory Planning and Review
Under Executive Order 12866, (58 FR 51735 (October 4, 1993)) the
Agency must determine whether the regulatory action is ``significant''
and therefore subject to OMB review and the requirements of the
Executive Order. The Order defines ``significant regulatory action'' as
one that is likely to result in a rule that may:
(1) Have an annual effect on the economy of $100 million or more or
adversely affect in a material way the economy, 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.
Pursuant to the terms of Executive Order 12866, it has been
determined that this rule is a ``significant regulatory action''
because the rule raises novel policy issues arising out of the BEACH
Act. As such, this action was submitted to OMB for review. Changes made
in response to OMB suggestions or recommendations will be documented in
the public record.
B. Paperwork Reduction Act
This action does not impose an information collection burden under
the provisions of the Paperwork Reduction Act (44 U.S.C. 3501 et seq.).
It does not include any information collection, reporting, or record-
keeping requirements.
Burden means the total time, effort or financial resources expended
by persons to generate, maintain, retain, or disclose or provide
information to or for a Federal agency. This includes the time needed
to review instructions; develop, acquire, install, and utilize
technology and systems for the purposes of collecting, validating, and
verifying information, processing and maintaining information, and
disclosing and providing information; adjust the existing ways to
comply with any previously applicable instructions and requirements;
train personnel to be able to respond to a collection of information;
search data sources; complete and review the collection of information;
and transmit or otherwise disclose the information.
An Agency may not conduct or sponsor, and a person is not required
to respond to a collection of information unless it displays a
currently valid OMB control number. The OMB control numbers for EPA's
regulations in 40 CFR are listed in 40 CFR part 9.
C. Regulatory Flexibility Act
The Regulatory Flexibility Act (RFA), as amended by the Small
Business Regulatory Enforcement Fairness Act of 1996 (SBREFA), 5 U.S.C.
601 et seq., generally requires an agency to prepare a regulatory
flexibility analysis of any rule subject to notice and comment
rulemaking requirements under the Administrative Procedure Act or any
other statute unless the agency certifies that the rule will not have a
significant economic impact on a substantial number of small entities.
Small entities include small businesses, small organizations and small
governmental jurisdictions.
For purposes of assessing the impacts of today's proposed rule on
small entities, small entity is defined as: (1) A small business
according to RFA default definitions for small business (based on SBA
size standards); (2) a small governmental jurisdiction that is a
government of a city, county, town, school district or special district
with a population of less than 50,000; and (3) a small organization
that is any not-for-profit enterprise which is independently owned and
operated and is not dominant in its field.
After considering the economic impacts of today's proposed rule on
small entities, I certify that this action will not have a significant
economic impact on a substantial number of small entities. This
proposed rule will not impose any requirements on small entities. The
RFA requires analysis of the impacts of a rule on the small entities
subject to the rule's requirements. See United States Distribution
Companies v. FERC, 88 F.3d 1105, 1170 (DC Cir. 1996). Today's proposed
rule establishes no requirements applicable to small entities, and so
is not susceptible to regulatory flexibility analysis as prescribed by
the RFA. (``[N]o [regulatory flexibility] analysis is necessary when an
agency determines that the rule will not have a significant economic
impact on a substantial number of small entities that are subject to
the requirements of the rule,'' United Distribution at 1170, quoting
Mid-Tex Elec. Co-op v. FERC, 773 F.2d 327, 342 (DC Cir. 1985) (emphasis
added by United Distribution court).) We continue to be interested in
the potential impacts of the proposed rule on small entities and
welcome comments on issues related to such impacts.
CWA section 303(i)(2)(A) requires that if a State or Territory
fails to adopt water quality criteria and standards in accordance with
paragraph (1)(A) that are as protective of human health as the criteria
for pathogen indicators for coastal recreation waters published by the
Administrator, the Administrator shall promptly propose regulations for
the State or Territory setting forth revised or new water quality
standards for pathogen indicators described in paragraph (1)(A) for
coastal recreation waters of the State or Territory. These State
standards (or EPA-promulgated standards) are implemented through
various water quality control programs including the NPDES program,
which limits discharges to navigable waters except in compliance with
an NPDES permit. The CWA requires that all NPDES permits include any
limits on discharges that are necessary to meet applicable water
quality standards.
Thus, under the CWA, EPA's promulgation of water quality standards
establishes standards that the State generally implements through the
NPDES permit process. In this case, EPA Regional Offices are the NPDES
permitting authority in five of the States and Territories subject to
today's proposal. EPA Regions 1, 2, 9 and 10 are the permitting
authorities for Massachusetts, Puerto Rico, the Commonwealth of the
Northern Mariana Islands, for some permits in Hawaii, and Alaska,
respectively. As such, EPA Regions 1, 2, 9, and 10 have discretion
[[Page 41740]]
in developing discharge limits as needed to meet the standards. While
these Regions' implementation of Federally promulgated water quality
standards may result in new or revised discharge limits being placed on
small entities, the standards themselves do not apply to any
discharger, including small entities.
Today's proposed rule, as explained earlier, does not itself
establish any requirements that are applicable to small entities. As a
result of this action, States, Territories, and EPA Regional offices
will need to ensure that permits they issue include any limitations on
discharges necessary to comply with the standards established in the
final rule. In doing so, the States, Territories, and EPA Regions will
have a number of choices associated with permit writing. While the
implementation of the rule may ultimately result in some new or revised
permit conditions for some dischargers, EPA's action today does not
impose any of these as yet unknown requirements on small entities.
D. Unfunded Mandates Reform Act
Title II of the Unfunded Mandates Reform Act of 1995 (UMRA), Public
Law 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. The definition of ``State'' for the
purposes of UMRA includes ``a territory or possession of the United
States.'' Under section 202 of the UMRA, EPA generally must prepare a
written statement, including a cost-benefit analysis, for 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,
section 205 of the 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. The provisions of section 205 do
not apply when they are inconsistent with applicable law. Moreover,
section 205 allows EPA to adopt an alternative other than the least
costly, most cost-effective or least burdensome alternative if the
Administrator publishes with the final rule an explanation of why that
alternative was not adopted. Before EPA establishes any regulatory
requirements that may significantly or uniquely affect small
governments, including Tribal governments, it must have developed under
section 203 of the UMRA a small government agency plan. The plan must
provide for notifying potentially affected small governments, enabling
officials of affected small governments to have meaningful and 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.
Today's proposed rule contains no Federal mandates (under the
regulatory provisions of Title II of the UMRA) that may result in
expenditures to State, local and Tribal governments, or the private
sector, in the aggregate of $100 million or more in any one year.
Therefore, this rule is not subject to the requirements of sections 202
and 205 of the UMRA.
EPA has determined that this proposed rule contains no regulatory
requirements that might significantly or uniquely affect small
governments. Thus, this proposed rule is not subject to the
requirements of section 203 of the UMRA.
E. Executive Order 13132: Federalism
Executive Order 13132, entitled ``Federalism'' (64 FR 43255, August
10, 1999), requires EPA to develop an accountable process to ensure
``meaningful and timely input by State and local officials in the
development of regulatory policies that have Federalism implications.''
``Policies that have Federalism implications'' is defined in the
Executive Order to include regulations that have ``substantial direct
effects on the States, on the relationship between the national
government and the States, or on the distribution of power and
responsibilities among the various levels of government.''
This proposed rule does not have Federalism implications. It will
not have substantial direct effects on the States, on the relationship
between the national government and the States, or on the distribution
of power and responsibilities among the various levels of government,
as specified in Executive Order 13132. EPA's authority and
responsibility to promulgate Federal water quality standards when State
standards do not meet the requirements of the CWA is well established
and has been used on various occasions in the past. The proposed rule
would not substantially affect the relationship of EPA and the States
and Territories, or the distribution of power or responsibilities
between EPA and the various levels of government. The proposed rule
would not alter the States' or Territories' considerable discretion in
implementing these water quality standards. Further, this proposed rule
would not preclude the States and Territories from adopting water
quality standards that meet the requirements of the CWA, either before
or after promulgation of the final rule, thus eliminating the need for
Federal standards. Thus, Executive Order 13132 does not apply to this
proposed rule.
Although Executive Order 13132 does not apply to this rule, EPA did
consult with representatives of the States and Territories subject to
CWA section 303(i) in developing this rule. Prior to this proposed
rulemaking action, EPA had numerous phone calls, meetings and exchanges
of written correspondence with the States to discuss EPA's concerns
with the States' bacteria criteria, compliance with the BEACH Act, and
the Federal rulemaking process. In June 2000 EPA and the Association of
State and Interstate Water Pollution Control Administrators (ASIWPCA)
established a State/EPA Work Group on Water Quality Standards, composed
of selected senior State and EPA managers, to provide input to EPA on
water quality standards issues. The group has met approximately three
times per year since then, beginning with a meeting in September 2000.
At every meeting the group has discussed the scientific, programmatic,
and policy aspects of bacteria criteria for both coastal and non-
coastal recreation waters, and has provided useful input to EPA on
these topics. Members of this group, together with other interested
State participants, have also served as an ad-hoc work group since 2001
to assist EPA in developing draft detailed scientific and policy
guidance (Implementation Guidance for Ambient Water Quality Criteria
for Bacteria, May 2002 Draft, EPA-823-B-02-003) concerning adoption and
implementation of EPA's recommended criteria for bacteria. EPA will
continue to work with the States and Territories before finalizing
these water quality standards. In the spirit of Executive Order 13132,
and consistent with EPA policy to promote communications between EPA
and State and local governments, EPA specifically solicits comment on
this proposed rule from State and local officials.
F. Executive Order 13175: Consultation and Coordination With Indian
Tribal Governments
Executive Order 13175, entitled ``Consultation and Coordination
with Indian Tribal Governments'' (65 FR 67249, November 6, 2000),
requires EPA to develop an accountable process to ensure ``meaningful
and timely input by
[[Page 41741]]
tribal officials in the development of regulatory policies that have
tribal implications.'' ``Policies that have tribal implications'' is
defined in the Executive Order to include regulations that have
``substantial direct effects on one or more Indian tribes, on the
relationship between the Federal government and the Indian tribes, or
on the distribution of power and responsibilities between the Federal
government and Indian tribes.''
This proposed rule does not have tribal implications. It will not
have substantial direct effects on tribal governments, on the
relationship between the Federal government and Indian tribes, or on
the distribution of power and responsibilities between the Federal
government and Indian tribes, as specified in Executive Order 13175.
There are four authorized Indian Tribes with coastal or Great Lakes
waters; however, they have not yet adopted water quality standards, and
therefore, have no designated coastal recreation waters within their
jurisdiction. These tribes are therefore not subject to today's
proposed rule. Thus, Executive Order 13175 does not apply to this rule.
EPA has contacted those Tribes identified as having coastal or
Great Lakes waters to inform them of the potential future impact this
proposal could have on Tribal waters. EPA specifically solicits
additional comment on this proposed rule from tribal officials.
G. Executive Order 13045: Protection of Children From Environmental
Health Risks and Safety Risks
Executive Order 13045: ``Protection of Children from Environmental
Health Risks and Safety Risks'' (62 FR 19885, April 23, 1997) applies
to any rule that: (1) Is determined to be ``economically significant''
as defined under Executive Order 12866, and (2) concerns an
environmental health or safety risk that EPA has reason to believe may
have a disproportionate effect on children. If the regulatory action
meets both criteria, the Agency must evaluate the environmental health
or safety effects of the planned rule on children, and explain why the
planned regulation is preferable to other potentially effective and
reasonably feasible alternatives considered by the Agency.
This proposed rule is not subject to the Executive Order because it
is not economically significant as defined in Executive Order 12866.
H. Executive Order 13211: Actions That Significantly Affect Energy
Supply, Distribution, or Use
This rule is not a ``significant energy action'' as defined in
Executive Order 13211, ``Actions Concerning Regulations That
Significantly Affect Energy Supply, Distribution, or Use'' (66 FR 28355
(May 22, 2001)) because it is not likely to have a significant adverse
effect on the supply, distribution, or use of energy. EPA estimates
that compliance with the proposed rule will create a negligible
increase in nationwide energy consumption for point source facilities
discharging to coastal recreation waters in affected States. In Section
VI, EPA presented its estimated incremental costs to permitted
facilities as a result of the proposed rule. Some of these costs
include energy use associated with increased maintenance of
disinfection tanks. EPA estimates that the increased energy use from
these activities would be about 140,000 kilowatt hours. Net production
by electric power generation facilities in the United States in 2002
was 3,858,452 million kilowatt hours (Energy Information
Administration, Department of Energy, http://www.eia.doe.gov/neic/quickfacts/quickelectric.htm). EPA estimates that the additional energy
requirements of EPA's rule are insignificant (i.e., 0.000004% of
national energy generation).
I. National Technology Transfer and Advancement Act
Section 12(d) of the National Technology Transfer and Advancement
Act of 1995 (``NTTAA''), Public Law 104-113, section 12(d) (15 U.S.C.
272 note) directs EPA to use voluntary consensus standards in its
regulatory activities unless to do so would be inconsistent with
applicable law or otherwise impractical. Voluntary consensus standards
are technical standards (e.g., materials specifications, test methods,
sampling procedures, and business practices) that are developed or
adopted by voluntary consensus standards bodies. The NTTAA directs EPA
to provide Congress, through OMB, explanations when the Agency decides
not to use available and applicable voluntary consensus standards.
While ambient water quality criteria may be considered technical
standards EPA is not aware of any voluntary consensus standards
relating to bacteria criteria to protect human health. Furthermore,
even if there were such voluntary consensus standards the BEACH Act
specifically directs EPA to promulgate Federal standards based on its
own bacteria criteria, published in accordance with CWA section 304(a),
in cases where States fail to do so. Therefore, EPA is not considering
the use of any voluntary consensus standards.
List of Subjects in 40 CFR Part 131
Environmental protection, Intergovernmental relations, Reporting
and recordkeeping requirements, Water pollution control.
Dated: July 1, 2004.
Michael O. Leavitt,
Administrator.
For the reasons set out in the preamble, EPA proposes to amend 40
CFR part 131 as follows:
PART 131--WATER QUALITY STANDARDS
1. The authority citation for part 131 continues to read as
follows:
Authority: 33 U.S.C. 1251 et seq.
Subpart D--[Amended]
2. Section 131.41 is added to read as follows:
Sec. 131.41 Bacteriological criteria for those states not complying
with Clean Water Act section 303(i)(1)(A).
(a) Scope. This section is a promulgation of the Clean Water Act
section 304(a) criteria for bacteria for coastal recreation waters in
specific States. It is not a general promulgation of the Clean Water
Act section 304(a) criteria for bacteria. This section also contains a
compliance schedule provision.
(b) Definitions--(1) Coastal Recreation Waters are the Great Lakes
and marine coastal waters (including coastal estuaries) that are
designated under section 303(c) of the Clean Water Act for use for
swimming, bathing, surfing, or similar water contact activities.
Coastal recreation waters do not include inland waters or waters
upstream from the mouth of a river or stream having an unimpaired
natural connection with the open sea.
(2) Designated bathing beach waters are those coastal recreation
waters that, during the recreation season, are heavily-used and may
have: A lifeguard, bathhouse facilities, or public parking for beach
access. States may include any other waters in this category even if
the waters do not meet these criteria.
(3) Moderate use coastal recreation waters are those coastal
recreation waters that are not designated bathing beach waters but
typically, during the recreation season, are used by at least half of
the number of people as at typical designated bathing beach waters
[[Page 41742]]
within the State. States may also include light use or infrequent use
coastal recreation waters in this category.
(4) Light use coastal recreation waters are those coastal
recreation waters that are not designated bathing beach waters but
typically, during the recreation season, are used by less than half of
the number of people as at typical designated bathing beach waters
within the State, but are more than infrequently used. States may also
include infrequent use coastal recreation waters in this category.
(5) Infrequent use coastal recreation waters are those coastal
recreation waters that are rarely or occasionally used.
(6) New pathogen discharger for the purposes of this rule means any
building, structure, facility, or installation from which there is or
may be a discharge of pathogens, the construction of which commenced on
or after [THE EFFECTIVE DATE OF THE RULE].
(7) Existing pathogen discharger for the purposes of this rule
means any discharger that is not a new pathogen discharger.
(c) EPA's section 304(a) ambient water quality criteria for
bacteria.
(1) Fresh waters:
--------------------------------------------------------------------------------------------------------------------------------------------------------
C Single sample maximum (per 100 ml)
-------------------------------------------------------------------
C2 Moderate C3 Light use C4 Infrequent
B Geometric C1 Designated use coastal coastal use coastal
A Indicator mean bathing beach recreation recreation recreation
(75% confidence waters (82% waters (90% waters (95%
level) confidence confidence confidence
level) level) level)
--------------------------------------------------------------------------------------------------------------------------------------------------------
E. coli............................................................ 126/100 ml \a\ 235 \b\ 298 \b\ 409 \b\ 575 \b\
--------------------------------------------------------------------------------------------------------------------------------------------------------
Footnotes to table in paragraph (c)(1):
\a\ This value is for use with analytical methods 1106.1 or 1600 or any equivalent viable method.
\b\ Calculated using the following: single sample maximum = geometric mean * 10 [supcaret] (confidence level factor * log standard deviation), where the
confidence level factor is: 75%: 0.68; 82%: 0.94; 90%: 1.28; 95%: 1.65. The log standard deviation from EPA's epidemiological studies is 0.4.
(2) Marine waters:
--------------------------------------------------------------------------------------------------------------------------------------------------------
C Single sample maximum (per 100 ml)
-------------------------------------------------------------------
C2 Moderate C3 Light use C4 Infrequent
B Geometric C1 Designated use coastal coastal use coastal
A Indicator mean bathing beach recreation recreation recreation
(75% confidence waters (82% waters (90% waters (95%
level) confidence confidence confidence
level) level) level)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Enterococci........................................................ 35/100 ml \a\ 104 \b\ 158 \b\ 276 \b\ 501 \b\
--------------------------------------------------------------------------------------------------------------------------------------------------------
Footnotes to table in paragraph (c)(2):
\a\ This value is for use with analytical methods 1103.1, 1603, or 1604 or any equivalent viable method.
\b\ Calculated using the following: single sample maximum = geometric mean * 10 [supcaret] (confidence level factor * log standard deviation), where the
confidence level factor is: 75%: 0.68; 82%: 0.94; 90%: 1.28; 95%: 1.65. The log standard deviation from EPA's epidemiological studies is 0.7.
(3) As an alternative to the single sample maximum in paragraph
(c)(1) or (c)(2) of this section, States may use a site-specific log
standard deviation to calculate a single sample maximum for individual
coastal recreation waters, but must use at least 30 samples from a
single recreation season to do so.
(d) Applicability. (1) The criteria in paragraph (c) of this
section apply to the coastal recreation waters of the States identified
in paragraph (e) of this section and apply concurrently with any
ambient recreational water criteria adopted by the State, except for
those coastal recreation waters where State regulations contain
criteria approved by EPA as meeting the requirements of Clean Water Act
section 303(i), in which case the State's criteria for those coastal
recreation waters will apply and not the criteria in paragraph (c) of
this section.
(2) The criteria established in this section are subject to the
State's general rules of applicability in the same way and to the same
extent as are other Federally-adopted and State-adopted numeric
criteria when applied to the same use classifications.
(e) Applicability to specific jurisdictions. (1) The criteria in
paragraph (c)(1) of this section apply to fresh coastal recreation
waters of the following States: Illinois, Minnesota, New York, Ohio,
Pennsylvania, Wisconsin.
(2) The criteria in paragraph (c)(2) of this section apply to
marine coastal recreation waters of the following States: Alaska,
California (except for coastal recreation waters within the
jurisdiction of Regional Board 4), Delaware (except for waters with
human sources of fecal contamination), Florida, Georgia, Hawaii (except
for non-estuarine coastal recreation waters within 300 meters of the
shoreline), Louisiana, Maine (except for SB and SC waters with human
sources of fecal contamination), Maryland, Massachusetts, Mississippi,
New York, North Carolina, Oregon, Puerto Rico (except for waters
classified by Puerto Rico as intensely used for primary contact
recreation and for those waters included in 40 CFR 131.40), Rhode
Island, South Carolina, United States Virgin Islands, Washington.
(3) The criteria in column C of paragraph (c)(2) of this section
apply to marine coastal recreation waters of the following States:
Commonwealth of the Northern Mariana Islands, Hawaii (for non-estuarine
coastal recreation waters within 300 meters of shore).
(f) Schedules of compliance. (1) Subsection (f) applies to any
State that does not have a regulation in effect for Clean Water Act
purposes that authorizes compliance schedules subject to this
paragraph, except for [LIST OF STATES AND TERRITORIES
[[Page 41743]]
THAT TELL EPA IN WRITING THAT THEY DO NOT WANT TO ALLOW A SCHEDULE OF
COMPLIANCE]. All dischargers shall promptly comply with any new or more
restrictive water quality-based effluent limitations based on the water
quality criteria set forth in this section.
(2) When a permit issued on or after [THE EFFECTIVE DATE OF THE
RULE] to a new pathogen discharger as defined in paragraph (b) of this
section contains water quality-based effluent limitations based on
water quality criteria set forth in paragraph (c) of this section, the
permittee shall comply with such water quality-based effluent
limitations upon the commencement of the discharge.
(3) Where an existing pathogen discharger reasonably believes that
it will be infeasible to comply immediately with a new or more
restrictive water quality-based effluent limitations based on the water
quality criteria set forth in this section, the discharger may request
approval from the permit issuing authority for a schedule of
compliance.
(4) A compliance schedule for an existing pathogen discharger shall
require compliance with water quality-based effluent limitations based
on water quality criteria set forth in paragraph (b) of this section as
soon as possible, taking into account the dischargers' ability to
achieve compliance with such water quality-based effluent limitations.
(5) If the schedule of compliance for an existing pathogen
discharger exceeds one year from the date of permit issuance,
reissuance or modification, the schedule shall set forth interim
requirements and dates for their achievement. The period between dates
of completion for each requirement may not exceed one year. If the time
necessary for completion of any requirement is more than one year and
the requirement is not readily divisible into stages for completion,
the permit shall require, at a minimum, specified dates for annual
submission of progress reports on the status of interim requirements.
(6) In no event shall the permit issuing authority approve a
schedule of compliance for an existing pathogen discharge which exceeds
five years from the date of permit issuance, reissuance, or
modification, whichever is sooner.
(7) If a schedule of compliance exceeds the term of a permit,
interim permit limits effective during the permit shall be included in
the permit and addressed in the permit's fact sheet or statement of
basis. The administrative record for the permit shall reflect final
permit limits and final compliance dates. Final compliance dates for
final permit limits, which do not occur during the term of the permit,
must occur within five years from the date of issuance, reissuance or
modification of the permit which initiates the compliance schedule.
[FR Doc. 04-15614 Filed 7-8-04; 8:45 am]
BILLING CODE 6560-50-P