STATE CONSTRAINTS State-Imposed Limitations on the Authority of Agencies to Regulate Waters Beyond the Scope of the Federal Clean Water Act An ELI 50-State Study May 2013 A PUBLICATION OF THE ENVIRONMENTAL LAW INSTITUTE WASHINGTON, DC ACKNOWLEDGMENTS This report was prepared by the Environmental Law Institute (ELI) with funding from the U.S. Environmental Protection Agency under GSA contract No. GS-10F-0330P (P.O. # EP10H000246). The contents of this report do not necessarily represent the views of EPA, and no official endorsement of the report or its findings by EPA may be inferred. Principal ELI staff contributing to the project were Bruce Myers, Catherine McLinn, and James M. McElfish, Jr. Additional research and editing assistance was provided by Carolyn Clarkin, Michael Liu, Jocelyn Wiesner, Masumi Kikkawa, Katrina Cuskelly, Katelyn Tsukada, Jamie Friedland, Sean Moran, Brian Korpics, Meredith Wilensky, Chelsea Tu, and Kiera Zitelman. ELI extends its thanks to Donna Downing and Sonia Kassambara of EPA, as well as to Erin Flannery and Damaris Christensen. Any errors and omissions are solely the responsibility of ELI. The authors welcome additions, corrections, and clarifications for purposes of future updates to this report. About ELI Publications— ELI publishes Research Reports that present the analysis and conclusions of the policy studies ELI undertakes to improve environmental law and policy. In addition, ELI publishes several journals and reporters—including the Environmental Law Reporter, The Environmental Forum, and the National Wetlands Newsletter—and books, which contribute to education of the profession and disseminate diverse points of view and opinions to stimulate a robust and creative exchange of ideas. Those publications, which express opinions of the authors and not necessarily those of the Institute, its Board of Directors, or funding organizations, exemplify ELI’s commitment to dialogue with all sectors. ELI welcomes suggestions for article and book topics and encourages the submission of draft manuscripts and book proposals. State Constraints: State-Imposed Limitations on the Authority of Agencies to Regulate Waters Beyond the Scope of the Federal Clean Water Act Copyright © 2013 Environmental Law Institute®, Washington, DC. All rights reserved. ELI Project No. 0931-01 (Environmental Law Institute®, The Environmental Forum®, and ELR® – The Environmental Law Institute Law Reporter® are registered trademarks of the Environmental Law Institute.) CONTENTS EXECUTIVE SUMMARY..........................................................................................1 INTRODUCTION AND BACKGROUND .........................................................................3 NATIONAL CHARACTERIZATION OF LIMITATIONS CONTAINED IN STATE LAWS...................7 PART I STATES WITH STRINGENCY LIMITATIONS............................................................ 11 A. STRINGENCY PROHIBITIONS ............................................................. 12 B. QUALIFIED STRINGENCY PROHIBITIONS ............................................. 13 C. THREE KEY ASPECTS OF A STATE STRINGENCY PROVISION .................. 15 D. IMPLICATIONS FOR PROTECTING ADDITIONAL STATE WATERS ............... 18 PART II STATES WITH PROPERTY-BASED LIMITATIONS .................................................... 20 A. COMPENSATION/PROHIBITION PROVISIONS ........................................ 21 B. ASSESSMENT PROVISIONS ............................................................... 24 C. OTHER PROVISIONS........................................................................ 27 D. IMPLICATIONS FOR PROTECTING ADDITIONAL STATE WATERS ............... 29 PART III SYNTHESIS: COMPARING STATES THAT REGULATE BEYOND THE SCOPE OF THE FEDERAL CLEAN WATER ACT TO STATES THAT SELF-LIMIT ................................31 CONCLUSION....................................................................................................36 APPENDIX 1: RESEARCH METHODOLOGY ...............................................................38 APPENDIX 2: STATE PROFILES .............................................................................40 ALABAMA ...............................................................................................41 ALASKA..................................................................................................42 ARIZONA ................................................................................................43 ARKANSAS ..............................................................................................49 CALIFORNIA ............................................................................................52 COLORADO .............................................................................................54 CONNECTICUT.........................................................................................57 DELAWARE .............................................................................................59 DISTRICT OF COLUMBIA ............................................................................61 FLORIDA ................................................................................................62 GEORGIA ...............................................................................................78 HAWAII ..................................................................................................79 IDAHO ...................................................................................................80 ILLINOIS .................................................................................................86 INDIANA .................................................................................................87 IOWA .....................................................................................................93 KANSAS .................................................................................................97 KENTUCKY............................................................................................102 LOUISIANA............................................................................................106 MAINE .................................................................................................114 MARYLAND ...........................................................................................123 MASSACHUSETTS...................................................................................126 MICHIGAN ............................................................................................128 MINNESOTA ..........................................................................................132 MISSISSIPPI ..........................................................................................135 MISSOURI.............................................................................................141 MONTANA.............................................................................................143 NEBRASKA............................................................................................151 NEVADA ...............................................................................................154 NEW HAMPSHIRE...................................................................................157 NEW JERSEY ........................................................................................158 NEW MEXICO........................................................................................163 NEW YORK ...........................................................................................164 NORTH CAROLINA ..................................................................................166 NORTH DAKOTA.....................................................................................169 OHIO...................................................................................................173 OKLAHOMA...........................................................................................176 OREGON ..............................................................................................178 PENNSYLVANIA ......................................................................................191 RHODE ISLAND ......................................................................................194 SOUTH CAROLINA ..................................................................................196 SOUTH DAKOTA.....................................................................................198 TENNESSEE ..........................................................................................200 TEXAS .................................................................................................204 UTAH ..................................................................................................213 VERMONT.............................................................................................220 VIRGINIA ..............................................................................................221 WASHINGTON........................................................................................225 WEST VIRGINIA .....................................................................................229 WISCONSIN...........................................................................................234 WYOMING.............................................................................................238 EXECUTIVE SUMMARY Twice in the last 12 years, the U.S. Supreme Court has issued decisions