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JACKSONKELLY„,c 500 LEE STREET EAST • SUITE 1600 • P.O. BOX 553 • CHARLESTON. WEST VIRGINIA 25322 • TELEPHONE: 304-340-1000 • TELECOPIER: 304-340-1 1 30. www.jacksonketly.com E-mail Address: [email protected] Writer's Fax No.: 304-340-1272 Direct Dial No.: 304-340-1203 May 21, 2018 VIA ELECTRONIC AND U.S. MAIL Jackie D. Shultz Clerk of the Board Environmental Quality Board 601 57th Street, SE Charleston, WV 25304 Re: Susan Taylor Dropp. et al. v. WVDEP, Appeal No. 18-01-EQB Dear Ms. Shultz: On behalf of Mountaineer Gas Company and the West Virginia Department of Environmental Protection, enclosed for filing are the original and six (6)) copies of a JOINT MOTION TO DISMISS OR FOR SUMMARY JUDGMENT ON CERTAIN CLAIMS OF APPELLANTS in the above-referenced appeal. Sincerely yours, eft-- A/4 CHRISTOPHER M. HUNTER CMH/sbo Enclosure cc: Susanne E. Thompson, w/enc. Rose Monahan, w/enc. Jason Wandling, w/enc. Bridgeport,VVV • Charleston,WV • Martinsburg,VVV • Morgantovm,VVV •Wheeling,WV 4850-8538-3782.v1 Denver, CO • Crawfordsville, IN • Evansville. IN • Lexington, KY •Akron, OH • Pittsburgh, PA •Washington, DC WEST VIRGINIA ENVIRONMENTAL QUALITY BOARD CHARLESTON,WEST VIRGINIA SUSAN TAYLOR DROPP and LAURA STEEPLETON, Appellants, v. Appeal No. 18-01-EQB DIRECTOR,DIVISION OF WATER AND WASTE MANAGEMENT,DEPARTMENT OF ENVIRONMENTAL PROTECTION, Appellee, and MOUNTAINEER GAS COMPANY, Proposed Intervenor/Appellee. JOINT MOTION TO DISMISS OR FOR SUMMARY JUDGMENT ON CERTAIN CLAIMS OF APPELLANTS I. INTRODUCTION By letter of February 7, 2018, Mountaineer Gas Company ("Mountaineer') obtained approval from the West Virginia Department of Environmental Protection("WVDEP") to use a general water pollution control permit for discharges of stormwater associated with Mountaineer's "Eastern Panhandle Expansion Project" ("Project'). See Certified Record ("CR"), p. 1855. The general permit and Mountaineer's registration to use it were issued under the terms of the West Virginia Water Pollution Control Act, W.Va. Code § 22-11-1 to -20. Appellants appealed that approval to this Board pursuant to W.Va. Code §22-11-21 on March 9, 2018. On March 22, 2018, Mountaineer and WVDEP moved to dismiss the claims advanced in paragraphs 1 a, 2, 3 & 5a for failure to state a claim in accordance with Rule 12(b)(6) of the West Virginia Rules of Civil Procedure. See "Joint Motion to Dismiss Certain Claims of Appellants." 4844-5833-0214.v1 In lieu of responding to the Joint Motion to Dismiss, Appellants filed an Amended Notice of Appeal on April 9, 2018. The Amended Notice of Appeal did not include certain objections that were the subject of the Joint Motion to Dismiss.' The Amended Appeal advances arguments in seven numbered paragraphs and six sub-paragraphs. See Amended Notice of Appeal, In 5-11. By this motion, WVDEP and Mountaineer move the Board to dismiss for failure to state a claim in accordance with Rule 12(b)(6) of the West Virginia Rules of Civil Procedure or grant the Appellees summary judgment pursuant to Rule 56 of the W.Va. R. Civ. P. on the claims advanced under the following paragraphs: ¶¶6.a., 6.b., 6.c., 6.f, 7, & 11. Regardless of the quality and quantity of the evidence that the Appellants might produce, these claims fall outside the permissible bounds of a challenge to the Construction Stormwater Permit. H. FACTS The Mountaineer Project involves the construction of an intra-state natural gas distribution system. In contrast to the 36-42" interstate transmission lines proposed to traverse hundreds of miles across the region, Mountaineer's Project consists of a smaller 10" diameter pipeline that will run about 23 miles from Berkeley Springs to Martinsburg. It will involve the disturbance of only about 191.7 acres along the entire length of the Project. See CR, p. 1 (WVDEP's Responsiveness Summary for Registration Application No. WVR310880). The approval authorized Mountaineer to use WVDEP's Oil & Gas Construction Stormwater General Permit. I The following claims, which were advanced in the original appeal and which Intervenor and Appellee moved to dismiss, were not included in the Amended Notice of Appeal: • WVDEP should have required an individual storm water permit to control possible inadvertent returns associated with underground borings; • WVDEP should conduct a 401 certification review; • WVDEP should request the U.S. Army Corps of Engineers to require an individual 404 permit; • A pipeline project must file a WV Code § 24B-3-2 inspection and maintenance plan. 2 4844-5833-0214.v1 Construction stormwater NPDES permits were first required by Congress under the Federal Clean Water Act ("Clean Water Act" or "CWA") after 1987 for land disturbance associated with construction activities. See Stormwater Phase II Compliance Assistance Guide, EPA 833-R-00-002, p. 2-4 (2000);2 see also 55 Fed. Reg. 47990 (Nov. 16, 1990) (EPA's promulgation of rules requiring NPDES permits for stormwater discharges from various sources, including construction activities disturbing 5 or more acres). Prior to that, these activities were considered non-point activities otherwise not subject to the NPDES permit program.3 Congress, however, specifically excluded the oil and gas industry from these requirements, and even today there is no federal requirement that natural gas pipelines obtain a construction stormwater NPDES permit. 33 U.S.C. § 1342(1)(2) (no NPDES permit required for uncontaminated stormwater from oil and gas transmission systems). Despite the exemption from the Federal CWA, WVDEP has created a "state only" requirement that oil and gas pipeline construction projects obtain a construction stormwater permit. WVDEP requires the oil and gas industry to obtain coverage under the General Permit to ensure a "consistent application of pollution control measures" and to establish a "level playing field." See WVDEP's Fact Sheet for General Water Pollution Control Permit for Stormwater Associated with Oil and Gas and Related Construction Activities, p. 2, ¶ 84 ("WVDEP's Fact Sheet"). 2 Available at https://www3.e_pa.gov/npdes/pubs/comguide.pdf(last accessed March 21, 2018). 3 See, e.g., Nat. Resources Def. Council v. U.S.E.P.A., 915 F.2d 1314, 1316 (9th Cir. 1990)(describing history of CWA and noting that, prior to 1987, "[t]he discharge of pollutants from nonpoint sources—for example, the runoff of pesticides from farmlands—was not directly prohibited. The Act focused on point source polluters presumably because they could be identified and regulated more easily than nonpoint source polluters."). 4 Available at https://dep.wv.gov/WWE/Programs/stormwater/csw/Documents/OG%20CSW%20Fact%20Sheet.pdf. 3 4844-5833-0214.v1 The primary means of authorizing stormwater discharges associated with pipeline construction is through the WVDEP's Oil & Gas Construction Stormwater General Permit—last issued after notice and comment in 2013.5 In lieu of traditional "effluent limitations" imposed in NPDES permits for non-stormwater permits, the General Permit establishes an extensive set of "best management practices" ("BMPs") to control erosion and sediment from earth disturbing activities. Persons desiring to use the General Permit must submit a detailed "registration" application with considerable detail about the BMPs that will be used for each area of planned disturbance. Here, Mountaineer submitted a registration application containing detailed plans for using BMPs along the route of the pipeline project. After considerable review, WVDEP approved the registration on February 8, 2018. III. DISCUSSION A. Objections relating to stream crossings, which are covered by Mountaineer's CWA § 404 permit(NWP 12), are not appropriately raised to the General Permit(¶¶ 6.a., 6.b., 6.0. The Amended Notice of Appeal raises the following objections in Paragraph 6: a. The Permit application fails to provide site-specific designs for stream crossing methods; b. The Permit application fails to provide restoration plans for stream crossings; * * * * f. The Permit application identifies 62 stream crossings including Warm Spring Run, Dry Run, Sleepy Creek, Big Run, Cherry Run, Gough Run, Tilhance Creek, Back Creek, Tulissus Branch and unnamed tributaries thereto, and fails to demonstrate adequate stream protection at these points. Emphasis added. The General Permit is intended to control stormwater from disturbed areas—it is not intended to control sediment or pollutants that could be released during stream crossings, 5 Available at https://dep.wv.gov/WWE/Programs/storrnwater/csw/Documents/OG%20stormwater%20GP%203_ 10_15.pdf. 4 4844-5833-0214.v1 whether they be so-called "open cut" crossings or consist of underground borings. The potential impacts of stream crossings fall to the exclusive domain of the Army Corps of Engineers in its implementation of Section 404 of the Clean Water Act("CWA"). See 33 U.S.C. §1344(a) (granting Secretary of the Army exclusive authority to permit discharges of dredged or fill material). The Project includes numerous pipeline stream crossings. Mountaineer has obtained approval for these crossings under Army Corps of Engineers' Nationwide Permit ("NWP") 12 (pertaining to utility line construction). See Exhibit 1 (NWP approval letter from Corps). Stormwater NPDES permits and CWA § 404 permits are mutually exclusive when it comes to controlling discharges of fill material in stream crossings. See Coeur Alaska, Inc. v. S.E. Alaska Conservation Council, 557 U.S. 261, 270-71 & 286 (2009) (Placement of fill material in the lake should be permitted under CWA § 404, rather than § 402. "[Plaintiff's] argument, that § 402 applies to this discharge and not § 404, is not consistent with the statute and regulations. .. ."). The Supreme Court made it clear that only one permit—issued under § 404— was required for the discharge of the fill material. Coeur Alaska, 557 U.S. at 276-77 ("if the discharge is fill, the discharger must seek a § 404 permit from the Corps; if not, only then must the discharger consider whether any EPA performance standard applies, so that the discharger requires a § 402 permit from the EPA.").