814F79100
>=/EPA
United States
Environmental Protection
Vgency
Office of Water
Planning and Standards
Washington DC 20460
Water
Questions and Answers
on Water Quality Standards
July 1979
2 8 19/9
GREAT LAKES NATIONAL PROGRAM
. CHICAGOJL 6
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QUESTIONS AND ANSWERS ON WATER QUALITY STANDARDS
The water quality standards program is directed by the Environmental
Protection Agency, an independent regulatory agency which has responsibility
for approving State-adopted standards, evaluating adherence to the
standards, and overseeing enforcement of standards conpliance.
Standards, the first nationwide strategy for water quality management,
contain three major elements: the use (i.e., recreation, drinking'water,
fish and wildlife propagation, industrial or agricultural) to be made of
the waters; criteria to protect those uses; and an antidegradation state-
nent to protect existing water quality.
For specified pollutants, ninirium water quality criteria or numerical
specifications based on physical, chemical and toxicological data and
scientific judgment, are stated in a 1976 EPA publication entitled Quality
Criteria for Hater. The information given for each criterion therein may
oe used to develop enforceable standards. Standards are adopted by States
following their own administrative requirements and then submitted to EPA
for review and approval. EPA may promulgate standards for a State if the
Agency deems the State-adopted standard does not meet the requirements of
the Clean Water Act or in cases where the Administrator judges that a new
or revised standard is necessary.
Water quality standards are subject to change when justified by
newly available technical or scientific information. For the latest
information refer to the existing approved water quality standards which
can be obtained from the individual State water pollution control agency
or the appropriate EPA regional office, listed in appendix A.
This pamphlet contains general information on a number of standards
issues but it is not a substitute for detailed policy and regulatory
requirements.
QUESTIONS AND ANSWERS ON WATER QUALITY STANDARDS
1. When did the water quality standards program begin?
The water quality standards program was established by the Water
Quality Act of 1965, which was passed unanimously by Congress.
2. What law applies now?
Section 303 of P.L. 92-500 of the 1977 amended Clean Water Act
(33 U.S.C. 1314(a)).
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3. Who administers the water quality standards program?
EPA's Regional Administrators have the authority to review and
approve State standards following national policies and guidelines
developed by the Criteria and Standards Division (WH-585), Office
of VJater Planning and Standards, 401 M St., S.W., Washington, D. C.
20460. Authority to promulgate Federal standards is reserved for the
Administrator of EPA.
4. How nany States, territories, or possessions are included in
the water quality standards program?
All fifty States plus the District of Columbia, Guam, Puerto Rico,
Samoa, Trust Territory of the Pacific Islands, and the Virgin Islands.
5. What does the law require States to do in order to establish
standards?
It requires that at least once every three years a State nust hold
a public hearing(s) for the purpose of reviewing applicable water quality
standards, and to modify and adopt new or revised standards where appro-
priate.
6. Who actually sets the standards?
The most common method is that the States, through the public
hearings, set surface water classifications and adopt criteria to meet
those classifications. After adoption by the State, they are submitted
to the appropriate EPA regional office for approval. The Administrator
of EPA may promulgate standards in cases where a new or revised standard
is deemed necessary.
7. Are water quality standards approved for all States?
Yes. Standards are approved for all 56 jurisdictions covered by
the law. As standards are revised from time to time, it is possible for
some portions of State-adopted standards not to have EPA approval. When
differences between EPA and the State cannot be resolved through negotia-
tion, Federal promulgation action may result.
8. What items comprise water quality standards?
VJater quality standards are comprised of numerical and narrative
criteria applied to specific surface water uses or classifications, plus
an antidegradation policy.
9. Exactly what are surface water classifications, criteria, and
ant idegradation?
(A) Surface water classifications include the beneficial uses to
be made of a particular stretch of a river, lake, or coastal water; such
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as, public water supplies, propagation of fish and wildlife, recreational
purposes, and agricultural, industrial, and other purposes including
navigation, or a conbination of these uses.
(B) Numerical criteria reflect the latest scientific knowledge on
the identifiable effects of pollutants on public health and welfare,
aquatic life, and recreation. Criteria are qualitative or quantitative
estiriates of the concentration of a water constituent which, when not
exceeded, will ensure water quality sufficient to protect a designated
water use.
(C) Antidegradation policies are conmitments to maintain water
quality gains and prevent backsliding.
10. Are all criteria given in numerical form?
No. Some criteria are narrative; where possible, numerical standards
are used.
11. Are economics considered in establishing criteria?
Mo. A criterion is a scientific entity based solely on data and
scientific judgement. It does not reflect consideration of economic or
technological feasibility. Economics nay be considered in setting
beneficial use designations and as a factor supporting stream use down-
gradings (see Question 25).
12. Why is the propagation of fish and wildlife used as a basic
guide in improving water quality?
Waters sufficient to provide for the propagation of fish and wild-
life are generally suitable for all human uses except swimming, for which
microbiological criteria apply, and untreated public drinking water. Ihe
term public water supplies in standards refers to waters to be used as
public drinking water after suitable treatment.
13. What kind of characteristics are covered by the water quality
criteria?
Physical, chemical, microbiological, biological and radiological
properties of water as well as fate and effect of toxic chemicals and
biochemical constituents are covered by water quality criteria.
14. What does the Environmental Protection Agency use to determine
the acceptability of standards?
Quality Criteria for Water, 1976 (QCW); the Advance Notice of Pro-
posed Rule Making ("ANPRTl") (43 FR 29588, July 10, 1978); 40 CFR 35.1550;
and Chapter 5 of the Guidelines for State and Areawide Water Quality
Management Program Development.
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15. Are copies of these reports available?
Yes. QCW, 1976 may be purchased from the Government Printing Office
at $3.50 a copy (GPO order number 055-001-01049-4). Chapter 5 Guidelines
may be obtained from EPA, Water Planning Division (WH-554), 401 II St., S.W.,
Washington, D. C. 20460.
16. What does the term "presumptive applicability" mean?
The criteria published in Quality Criteria for Water (QCW) have been
declared in a policy statement by EPA to be "presumptively applicable"
for use in State water quality standards. This policy requires that
criteria which States develop to support designated uses must be equally
protective of the designated use as the criteria published in QCW, or an
appropriate justification must accompany the adoption of less stringent
criteria. Thus, for any criteria to protect a specific designated use
contained in QCW which a State might include in its standards, EPA presumes
the QCW recommendations apply.
17. Are there any exceptions to the QCw recommendations?
Yes. Standards may be less stringent than recommended levels for a
specified use if it can be proven that: (1) the waterway, in its natural
state, has component levels which differ from the given criteria values;
(2) naturally occurring water characteristics exist that permit designated
uses to be attained or maintained with the application of less stringent
criteria; or, (3) recent scientific information is available that supports
less stringent criteria.
18. How did EPA get started on the project to develop water
quality criteria for toxic pollutants?
Under paragraph 11 of the Consent Decree in Natural Resources Defense
Council, et al. v. Train, 8 ERC 2120 (D.D.C. 1976), EPA must publish
criteria for 65 specified toxic pollutants. The criteria are to state
maximum recommended concentrations consistent with the protection of
aquatic life and human health.
19. When will these criteria be issued?
Proposed criteria for 27 of the 65 pollutants were published
for public connent on March 15, 1979, in the Federal Register (44 FR
15926). Criteria for the remaining 38 are expected to be published
during July 1979 with final publication for all 65 by the end of 1979.
Criteria will be issued under section 304(a) of the Clean Water Act and
are not water quality standards nor do they have any regulatory effect.
20. How will these criteria be used in the water quality standards
program?
These criteria could be used to develop enforceable standards;
however, it is important to know that before an enforceable standard is
set under any statutory authority, administrative rulemaking procedures
by either the States or EPA will provide interested parties the opportunity
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to participate in the setting of standards. EPA has not decided on the
way to use the criteria in the standards program but several options
exist: the criteria can be published only as information, they can be
viewed as an extension of Quality Criteria for Water with the policy
of presumptive applicability applied, they can be promulgated as national
standards, or certain selected pollutants may be identified and standards
developed for them.
21. Where can a more detailed discussion be found of the issues
associated with developing these criteria, their use in water quality
standards, and relationship with other programs?
In the Federal Register of March 15, 1979 (44 FR 15926) and of
July 10, 1978 (43 FR 29588).
22. Is there an opportunity for public participation in the
development of the criteria?
Yes. Public comments were .solicited on the proposed criteria and
will be considered in the preparation of final criteria documents.
23. Where can copies of the criteria documents be obtained?
National Technical Information Services
5285 Port Royal Road
Springfield, Va. 22161
24. What is a stream downgrading?
The tern "downgrading" applies solely to the beneficial use designation
of a water body and is used to describe the downward reclassification of a
water body when the current designated use requires more stringent water
quality criteria than are currently being attained.
25. How are downgrades initiated and approved?
States may request approval of a stream downgrade from EPA based on
one of three factors: (1) natural background conditions, (2) irretriev-
able man-induced conditions, and (3) the imposition of controls above
or in addition to the technology-based requirements of Best Available
Technology Economically Achievable and Best Practicable Wastewater
Treatment Technology would be required and would result in a substantial
and widespread adverse economic and social impact. Waters in which the
existing use is the same as the standard cannot be downgraded.
26. Do water quality standards apply to all navigable waters?
Yes.
27. Are standards for similar surface water uses comparable through-
out the United States?
Generally, yes. However, one goal of water quality standards adop-
tion is to encourage this endpoint, while recognizing local environmental
conditions.
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28. Can water quality standards for surface water differ within the
same State?
Yes. Water quality standards vary within the State depending upon
the use to be made of the receiving water. Water quality standards nay
also vary on each body of water depending on the use to be made of each
water segment or natural background condition in the particular water
systen.
29. Is the purpose of water quality standards to return all waters
to their pristine state?
No. The purpose of the water quality standards program is to pro-
tect the public health or welfare and enhance the quality of water in
line with the uses to be made of the surface water in question.
30. Can high quality waters, i.e. waters not yet polluted, be
permitted to deteriorate as long as approved water quality standards
are met?
No. An antidegradation provision in standards prohibits the
deterioration of high quality waters.
31. Do all States have an antidegradation provision in their
standards?
Yes.
32. Where is information available on the approval status of
standards for each State?
This question can be answered by either the State water pollution
control agency or the Environmental Protection Agency through its Regional
Offices or at its Washington, D.C. headquarters.
33. Can the Environmental Protection Agency disapprove standards
legally adopted by a State?
Yes. EPA Regional Administrators have 90 days after receipt of
State standards to issue a disapproval and notify the States of the
changes which are required.
34. What happens to the standards if they are disapproved?
Ihe States have 90 days to adopt the required changes. If this is
not done EPA must promptly initiate action to begin promulgation action.
EPA publishes proposed water quality standards for a State in the Federal
Register and after opportunity for public hearings and comment on the
proposals, publishes final (promulgates) standards for a State.
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35. Once adopted by the States and approved by the Federal govern-
ment, nay standards be nodified or revised?
Yes.
36. Who can initiate revisions or nodifications?
Either the State or the Administrator of EPA nay take action to
revise standards.
37. How likely is it that standards will be revised?
With continued advances in the science and technology of water
pollution control, it is expected that raany of the water quality standards
approved as of now will be improved from tine to time in the years
ahead in order to meet mounting demands for clean water for necessary and
desirable use. Standards will also be upgraded as increased knowledge
and improved analytical techniques beccn.e available. Ihe Act requires
that a Stette review its water quality standards at least once every 3
years.
38. If standards might later be revised, what is the use of investing
money to meet today's standards and running the risk of still additional
future investment?
One of the costs of doing business is keeping pace with advances in
technology and changes in the market place. As water quality technology
changes and the public continues to demand cleaner water, all current and
future requirements will have to be met. One of the chief causes of today's
dilemma-is that we failed to take early action to control or prevent
pollution. Delay today simply means added problems for tomorrow.
39. What is done to ensure that standards are met?
Each State has a surveillance or monitoring system to verify compli-
ance with standards.
40. How are water quality standards enforced?
The primary mechanism for enforcing water quality standards is
through translation into water-quality-based permit limitations.
Permits are issued under provisions of the National Pollutant Discharge
Elimination System (i.e. NPDES Permits).
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41. Can the Federal government enforce standards?
Yes. Once a water quality standard based limit is in an NPDES
pemit, it can be federally enforced.
42. What are the basic causes of pollution?
The causes of water pollution fall into two broad categories -
(1) untreated or inadequately treated wastes fron easily identified, point-
of-origin sources such as municipal waste treatment discharges, and (2)
waste from diffuse or nonpoint sources: silt or fertilizers washed into
a stream during a heavy rain.
43. What is a "mixing zone" that is called for in seme standards?
A mixing zone is a limited area, serving as a zone of initial dilution,
in the immediate area cf a point or ncnpoint source of pollution.
Establishing a mixing zone policy is a matter of State discretion. Such
a policy must be consistent with the Act and is subject to EPA approval.
44. Have the water quality standards resulted in any meaningful
achievements towards the goal of cleaner water?
The standards program, coupled with the expanded Federal grants
program for waste treatment construction, have provided a powerful stim-
ulus to the construction or expansion of municipal waste treatment plants.
The requirements of the standards program have accelerated the industrial
trend of including pollution control as a legitimate and regular part of
the cost of production. Efforts are being intensified to prevent or
control pollution from diffuse, nonpoint sources.
45. Do water quality standards apply to ground waters?
No. EPA recommends that States adopt water quality standards to pro-
tect the underground waters of the State, however, such standards are
not a Federal requirement.
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APPENDIX A
WATER QUALITY STANDARDS COORDINATORS
Kenneth II. tlackenthun
EPA Headquarters
401 M. St., S. W.
Washington, D. C. 20460
202-755-0100
Bill Butler
EPA Region I
John F. Kennedy Federal 3ldc
Boston, I1A 02203
617-223-5131
Harry Allen
EPA Region II
26 Federal Plaza
Hew York, NY 10007
212-264-1463
Gerald Pollis
EPA Region III
6th & Walnut St.
Curtis Bldg.
Philadelphia, PA 19106
215-597-3425
Mike McGhee
EPA Region IV
345 Courtland St.
Atlanta, GA 30308
404-257-3012
Robert Pearson
EPA Region V (5WWQ)
230 South Dearborn St.
12th Floor
Chicago, IL 60604
312-353-2166/2170
Sam Nott
EPA Region VI
1201 Elm St.
First International Bldg.
Dallas, TX 75270
214-729-2662
Dale Parke
EPA Peg ion VII
324 East llth St.
Kansas City, ยป0 64106
816-758-6391
Ton Willingham
EPA Region VIII (AW-CTC)
1860 Lincoln St.
Denver, CO 80203
303-327-2731
Phil Woods
EPA Region ix
215 Freemont St.
San Francisco, CA 94105
415-556-2263
Bob Rulifson
EPA Region X (H/S-441)
1200 6th Ave.
Seattle, WA 98101
206-399-1216
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United Slates
Environmental Protection
Agency
Washington DC 2C460
Official Business
Penalty for Private Jse $300
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Fees paid
Environmental
Protection
Agency
EPA 335
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