State Authorities

• Author: Margaret 'Peggy' Strand/Lowell Rothschild
• Pages: 183-198

Page 183

Chapter 7

State Authorities

The CWA preser ves state authority and does not preempt state law. As a result, in addition to

regulation under federa l law, wetlands frequent ly are regulated under state and local law. Such

laws cover the full ra nge of wetlands, including coastal, tida l, riparian, and isolated wetlands.

us, wetland s that are not, or arguably not, subject to federal jurisdiction may be subject to state or

local regulatory restrictions. W hile this Deskbook does not attempt to completely catalogue all state

and local regulations, it does present examples of state wetland regulations and provide sources for

additional information.1

is chapter also addresses the various CWA authorities used by the Corps (and EPA) to coordinate

federal and state wetland programs. rough these mechanisms, the state may obtain the “lead” for all or

part of the §404 program within its boundaries, subject to federal oversight. In addition, in most states

with their own wetlands permit program, the Corps and the state will administer their authorities through

a joint application process (using a single application form), to facilitate coordination for the agencies and

the applicants.

I. State Authority for §404 Permitting

States can be authorized to administer federal CWA authority under 33 U.S.C. §1344(g)-(k).2 To date,

only t wo states, Michigan3 and New Jersey,4 have received this authority. In these states, the state has

the authority to issue §404 permits, subject to federal oversight. States can also increase their role in the

federal regulation of wetla nds by obtaining state programmatic general permits f rom the Corps. e

ranks of states that have received state program general permits continues to grow and now includes

all of the states within the Corps’ New England district5(Connecticut,6 Maine,7 Massachusetts,8 New

1. ELI provides comprehensive studies of state wetland laws. See E L  I, S W A: S ,

T  M A  (2008), avai lable at http://ww w. elistore.org/reports_detail . asp?ID=11279&topic= Wetlands; E-

 L I, S W P E: P I-IV (2005-2008), available at http://eli.org/Progr am_areas/

water_pubs.cfm.

2. FWPCA §§404 (g)–(k). For a thorough review and analysis o f §404 delegati on, see Oliver A. Houck & Michael Rolland, Federalism in

Wetlands Regulation: A Con sideration of Delegation of C lean Water Act Section 404 and Related Programs to the States, 54 M. L. R. 1242

(1995).

3. 40 C.F.R. §233.70. Michigan assumed authority on October 16, 1984. See 49 Fed. Reg. 38947 (Oct 2, 1984).

4. 40 C.F.R. §233.7l. New Jersey assumed authority on March 2, 1994. See 59 Fed. Reg. 9933 (Mar. 2, 1994).See also 58 Fed. Reg. 36958 (July

9, 1993) (proposed approval) and 58 Fed. Reg. 46190 (Sept. 1, 1993) (nal approval).

5. At the time of publication, the New England District was developing a regional “New England” permit that would replace the six State

General Permits in the region. A draft of the permit is available at http://www.nae.usace.army.mil/Portals/74/docs/regulatory/publicnotices/

NAE-2013-00714.pdf.

6. Expires July 15, 2016.

7. Expires October 12, 2015.

8. Expires January 20, 2015.

Page 184 Wetlands Deskbook, 4th Edition

Hampshire,9 Rhode Island,10 and Vermont11), as well as Maryland,12 Minnesota,13 Pennsylvania,14

Virginia,15 and Wisconsin.16

A. State Program Authorization

EPA, not the Corps, makes the decision on whether to authorize a state to administer the §404 program.

e state program approval process is addressed in EPA regulations at 40 C.F.R. §233. e regulations

set forth the procedures for the submission17 and terms for approval18 of state and tribal programs. Among

other things, the state/tribal program will not be authorized to cover traditionally navigable waters or

waters seaward of the high watermark.19 Approved programs must be at least as stringent as the federal

regulations,20 state/tribal authorities must have adequate enforcement capabilities,21 and the state/tribe’s

attorney general must certify that the state has authority to carry out the program.22 States/tribes may

issue permits for no more than ve years and must have authority to revoke or modify permits equal to

that of the federal government.23 Also, the program must provide for inspection and monitoring analogous

to federal standards; opportunities for public notice and public hearings on permit applications; notice to

other aected states and tribes; assurance that permits that interfere with navigation will not be issued; and

coordination with federal and federal/state water-related planning processes.24

EPA’s regulations elaborate on the submission required for an approvable state program.25 EPA will

not approve partial state/tribal programs. However, a state/tribe may be authorized even if it declines to

administer existing federal general or nationwide permits.26 In those circumstances, activities that would

have been subject to a federal general or nationwide permit will be subject to individual permit review in

the authorized state. In addition, the lack of jurisdiction of a state over tribal lands does not constitute a

partial state program.27

EPA must act on a state’s request for approval within 120 days28 or the request is deemed approved.29 Fol-

lowing approval, state/tribal programs are still subject to federal oversight30(including the possible “veto”

of permits31) and must be revised if necessar y to accord with changes in federal laws and regulations.32 A

state/tribe with an approved program must provide EPA a copy of every permit application it receives and

of every general permit it intends to promulgate.33 EPA must provide these permits to the Corps and the

FWS. e federal government has 90 days to decide whether to object to the proposed permit and any

such objection prevents the issuance of the permit. If a state/tribe does not revise the permit to meet all of

the federal objections, the authority to issue that permit reverts to the federal government (the Corps).34

9. Expires August 3, 2017.

10. Expires February 22, 2017.

11. Expires December 6, 2017.

12. Expires October 1, 2016.

13. Expires January 31, 2017.

14. Expires July 1, 2016.

15. Expires May 31, 2017.

16. Expires May 31, 2016.

17. 40 C.F.R. §§233.10–.14.

18. 40 C.F.R. §233.15.

19. 33 U.S.C. §1344(g)(l).

20. 40 C.F.R. §233.1(d). Elements of a delegated state program that are more stringent than the federal program are not subject to federal oversight

or enforcement. 40 C.F.R. §233.1(c).

21. 40 C.F.R. §§233.12(a), 233.40, and 233.41.

22. 33 U.S.C. §1344(g)(l).

23. 33 U.S.C. §§1344(h)(l)(A)(ii), (iii).

24. 33 U.S.C. §§1344(h)(l)(B)–(H).

25. 40 C.F.R. §233.

26. See supra Chapter 4.

27. 40 C.F.R. §233.1(b).

28. EPA administers state program authorizations, although consultation with the Corps and the FWS is mandatory. 33 U.S.C. §1344(g)(2).

29. 33 U.S.C. §1344(h)(l).

30. 40 C.F.R. §§233.50–.53.

31. 40 C.F.R. §§233.20(b), 233.50.

32. 40 C.F.R. §233.16.

33. 33 U.S.C. §1344(j).

34. See Michigan Peat v. U.S. Environmental Protection Agency, 175 F.3d 422, 427, 29 ELR 21125 (6th Cir. 1999). See also40 C.F.R. §§233.50–.53

(federal oversight).