Citizens Coal Council
Working together for clean water, safe
homes and a healthy environment
110
Maryland Ave. N.E. #408
1705 S. Pearl St. #5
Washington,
D.C. 20002 Denver, Co. 80210
202-544-6210
fax: 202-544-7164 303-722-9119 fax:
303-722-8338
citzcoal@starpower.net ccc6@mindspring.com
Testimony of Doyle Coakley
Chair, Board of Directors
Citizens Coal Council
Regarding revisions to the
Clean Water Act with respect
to "fill material"
and "discharge of fill material"
Before the Environment and
Public Works Committee
Subcommittee on Clean Air,
Wetlands, and Climate Change
United States Senate
June 6, 2002
Mr. Chairman and members of
the Subcommittee, thank you for the opportunity to submit this statement for
the record on behalf of the Citizens Coal Council.
Citizens Coal Council is a
grass roots federation of citizen groups and individuals located throughout the
coal-producing regions of America working for social and environmental justice.
CCC and its members strive to protect people and their homes, water and
communities from damage due to coal mining and combustion and waste disposal by
focusing on enforcement of federal and State laws. Many of our members
suffer the direct impact of mountaintop removal coal mining and filling valleys
with waste material associated with coal mining and processing.
On March 3, 1999, the U.S.
District Court of the Southern District of West Virginia preliminarily enjoined
the Army Corps of Engineers (Corps) and the West Virginia Department of
Environmental (WVDEP) protection from issuing a permit authorizing mountaintop
removal surface mining at a site in Logan County, West Virginia.
That suit charged the Corps
and U.S. Environmental Protection Agency with a "pattern and
practice" of violating the federal Clean Water Act (CWA) National
Environmental Protection Act (NEPA) and Surface Mine and Reclamation Control
Act (SMCRA). Plaintiffs alleged the Corps consistently and without
authority issued valley fill permits under Section 404 of the CWA, which
prohibits the dumping of waste material into water bodies of the United
States. Valley fill material is
entirely waste material intended for disposal by the cheapest means possible --
shoving it down the mountainside to bury land and streams below.
Plaintiffs also charged that
WVDEP routinely issued permits allowing valley fills that are in violation of
SMCRA's so-called "buffer zone" requirements prohibiting dumping of
waste spoil within 100 feet of a stream.
Judge Charles Haden, II
issued his ruling October 29, 1999 that overturned decades of illegal
mountaintop removal mining in West Virginia by permanently enjoining the WVDEP
"from approving any further surface mining permits under current law that
would authorize placement of excess spoil in intermittent and perennial streams
for the primary purpose of waste disposal".
Judge Haden's decision was
appealed by the U.S. Justice Department in April 2000 and was overturned by the
Fourth Circuit Court of Appeals in April 2001. The Appeals Court ruled on
a jurisdiction issue and did not address the merits of the Haden opinion.
Judge Haden was right then and in a subsequent and similar lawsuit he was right
again.
Kentuckians For The
Commonwealth (KFTC) sued the Corps when it issued an area-wide permit
authorizing Martin County Coal Corporation (MCCC) to operate a mountaintop
removal coal operation designed to create 27 valley fills and thereby filling
6.3 miles of streams. KFTC claimed that the only purpose of valley fills
is to dispose of waste material. The CWA allows only one form of waste
disposal and that material is exclusively limited to dredge spoil.
“Fill material” (dredge
spoil) is deposited for some beneficial primary purpose (construction work and
infrastructure) and not for the purpose of disposal. For the Corps to
allow disposal of waste spoil is to rewrite the Clean Water Act. Judge
Haden ruled such rewriting of a federal law exceeds the authority of the
Executive Branch and requires an act of Congress. The framers of our
Constitution insisted on that separation of powers and the Judge upheld that
principle.
Sensing a second defeat of
its illegal use of valley fill permits to authorize destruction of Appalachia's
valleys and streams, the Bush Administration issued a final rule a few days
before Judge Haden's second opinion. It was intended to change the
definition of "fill material" and silence Judge Haden's pending
decision. The Judge would have none of that and issued his opinion in the
KFTC case on May 8. It not only struck down the Corps' interpretation of
its authority to issue valley fill permits to allow disposal of waste, it also
challenged and essentially dismissed the President's final rule issued on May
3.
Judge Haden reads the
purpose of the CWA "to restore and maintain the chemical, physical,
and biological integrity of the nation's waters." No pollutants can
be discharged into waters of the US without a CWA permit. All parties in
the KFTC case agreed that overburden from mountaintop removal coal mining is a
pollutant under the definition and requires a CWA permit under Section 404.
This Committee debated and
reported out the CWA in 1971 and legislative history makes it undeniably clear
it did not intend 404 permits to apply to fill discharges solely for waste or
pollutant disposal, other than disposal of dredge spoil.
Since 1977 the Corps has
defined "fill material" as:
"Any material used for
the primary purpose of replacing an aquatic area with dry land or of changing
the bottom elevation of water body. The term does not include any
pollutant discharge into the water primarily to dispose of waste, as that
activity is regulated under section 402 of the Clean Water Act."
Exactly as designated by
this Committee 404 fill is material discharged into water for construction,
development or property protection while waste disposal is regulated under
section 402.
The EPA definition of
"fill material" and "discharge" while not identical to the
definition used by the Corps, when considered together, point to the same use
and purpose requirement. EPA defines "fill material" as
"any 'pollutant' which replaces portions of the water of the United States
with dry land or which changes the bottom elevation of a water body for any
purpose." And, that is an origin of the controversy between the
Corps and EPA's interpretation of the same law used to permit valley fills.
EPA has always said, until
its May 3 final rule changing the definition of "fill material" the
purpose for discharging 404 fill is the construction or development or use for
which the fill is needed
and not the purpose for which the material is discharged. EPA has
never considered waste disposal as a proper purpose.
When mountaintop removal
overburden is dumped into valleys and streams to get rid of it that disposal
method has the effect of creating dry land or elevating the level of a stream
bottom but that was not the purpose of its disposal. Thus, the disposal
does not fit the Corps' definition of "fill material".
Longstanding regulatory
interpretation by both the Corps and EPA leads to the conclusion that 404 fill
permits are issued only for fill material with a constructive primary purpose,
not waste disposal.
SMCRA was written with great
care and with the assurance that none of its provisions violate any other
provision of federal law. SMCRA could not have allowed the disposal of
waste material into streams and water bodies of the United States because that
is prohibited by the CWA - plain and simple. In fact, two provisions of SMCRA
support the CWA protections for overburden disposal: approximate original contour (AOC) and the 100-foot buffer zone
rule.
Under SMCRA, coal mine
operators cannot dump the excess spoil that is not needed to achieve AOC unless
that disposal will make it possible to achieve "an equal or better or
public use" of that land. SMCRA assumes overburden (waste material
called “spoil”) will be returned to the mountaintop to achieve AOC unless
constructive and appropriate post-mining land use and purpose are designated
for the valley into which the fill is to be disposed.
Congress was clear about the disposal of overburden to achieve a purpose other than waste disposal. Finally, SMCRA does not allow disposal of overburden waste into streams and that is supported by the 1977 "buffer zone rule" written to enforce the strip mine reclamation law.
Coal companies that
routinely "practice" valley fill or head-of-the-hollow fill disposal
are breaking the law. State and federal
agencies that permit this type of mining operation are violating the law. This lawlessness and wreckless disregard for
the law and the health and safety of citizens must be challenged and stopped.
Mr. Chairman, Judge Haden is
determined to make the Bush Administration obey the law. He challenged
the Administration to resist overturning federal laws by making rulemakings
that ignore the intent of Congress and particularly this Committee.
It does not require a law
degree to understand the basics of this issue. Mountaintop removal and
valley fills are destroying the environment, private property and quality of
life in West Virginia and Central Appalachia. Floods are becoming more
frequent and loss of life more prevalent as silt and mud wash down the steep
inclines below the mining operations.
Judge Haden is our only line
of defense unless you take steps and exert your responsibilities to uphold the
federal Clean Water Act. We urge you to challenge the President's
rulemaking on the "fill material" definition.
Furthermore, we urge you and the Committee to travel to Central Appalachia to witness, firsthand, the lawless destruction of our communities and a part of the oldest mountains on the planet.