Speaker 2: Craig Juckniess of U.S. Army Corps of Engineers

Law Seminars International | Marine Shoreline Development | 2/21/07 in Seattle, WA

1

Corps Permitting under CWASection 404 and RHA Section 10

Craig JuckniessSeattle DistrictU.S. Army Corps of Engineers

Presentation Outline

• Section 10 Permitting Authority• Section 404 Permitting Authority• Permitting Process

– Public Interest Review– Section 404(b)(1) Guidelines

• Forms of Permits– Nationwide Permits– Regional General Permits

Seattle District’s Limits ofRegulatory Jurisdiction

District OfficeSeattle

Central WA Field OfficeChelan

Eastern WA Field OfficeSpokane

Lower Columbia River Ports - Portland District

Washington State

SW WA Field OfficeVancouver

Speaker 2: Craig Juckniess of U.S. Army Corps of Engineers

Law Seminars International | Marine Shoreline Development | 2/21/07 in Seattle, WA

2

Section 10 of the River andHarbor Act of 1899

• To protect and preserve the navigablecapacity of nation’s waters

• Regulated activities:– Erecting a structure– Dredging, disposal, or fill– Any other “work”

Activities Regulated underRHA Section 10

• Buoys• Floats• Marinas• Bulkheads• Breakwaters• Riprap

• Piers• Pilings• Boatlifts• Boat ramps• Utility lines

Geographic Scope of Section 10Jurisdiction

• Subject to the ebb and flow of the tides• Use in interstate or foreign commerce• Extends to:

– Ordinary High Water Mark– Mean High Water

Speaker 2: Craig Juckniess of U.S. Army Corps of Engineers

Law Seminars International | Marine Shoreline Development | 2/21/07 in Seattle, WA

3

Jurisdictional Boundaries

Other RHA 1899 PermittingAuthorities

• Dams and Dikes – “Section 9”• Discharge of Refuse – “Section 13”• Temporary Occupation of a Federal Work –

“Section 14”• Ocean Dumping – “Section 103”

Section 404 of the Clean Water Act

• Facilitates the CWA’s purpose of restoringand maintaining the chemical, physical andbiological integrity of the waters of the U.S.

• A permit is required for the discharge ofdredged or fill material into the waters ofthe U.S. at specified disposal sites

Speaker 2: Craig Juckniess of U.S. Army Corps of Engineers

Law Seminars International | Marine Shoreline Development | 2/21/07 in Seattle, WA

4

Geographic Scope ofSection 404 Jurisdiction

• Tidally influenced waters• Use in interstate or foreign commerce• Interstate waters• Intrastate waters affecting interstate or

foreign commerce• Tributaries to navigable waters• Adjacent Wetlands

Lateral Extent of Waters of theUnited States

• High tide line• Ordinary High Water Mark• Wetlands

– Delineation– Isolated Wetlands

Jurisdictional Boundaries

Speaker 2: Craig Juckniess of U.S. Army Corps of Engineers

Law Seminars International | Marine Shoreline Development | 2/21/07 in Seattle, WA

5

Regulated Activities underSection 404

• Discharges requiring permits– Discharge of dredged or fill material– Placement of pilings– Redeposit of dredged or excavated material– Use of mechanized earthmoving equipment

Regulated Activities underSection 404

• Discharges not requiring permits– Incidental Fallback– Normal farming/ranching/silviculture– Maintenance of serviceable structures– Emergency reconstruction of recent

damage– Pilings for linear projects

Permitting Process

• NEPA Compliance• Public Notice• Preparation of NEPA documentation

Speaker 2: Craig Juckniess of U.S. Army Corps of Engineers

Law Seminars International | Marine Shoreline Development | 2/21/07 in Seattle, WA

6

Permitting Process

• Permit issuance criteria:• Not contrary to the Public Interest• Complies with 404(b)(1) Guidelines• Does not jeopardize ESA listed species• Complies with all other applicable requirements

Public Interest Review

• Balance of the public benefits versus detriments

• Public interest review factors:

• Conservation

• Environmental concerns

• Cultural values

• Economics

• Navigation

• Recreation

• Historic Properties

• Fish and Wildlife

Section 404(b)(1) Guidelines

• Practicable Alternatives:– Available– Capable of being done, considering:

• Cost• Existing Technology• Logistics

Speaker 2: Craig Juckniess of U.S. Army Corps of Engineers

Law Seminars International | Marine Shoreline Development | 2/21/07 in Seattle, WA

7

Section 404(b)(1) Guidelines

• Discharges into Wetlands – Presumptions:– Practicable alternatives not involving discharge

into wetlands are presumed to have less adverseimpact

– If project is not water-dependent, practicablealternatives not involving discharge intowetlands are presumed to be available

Section 404(b)(1) Guidelines

• A project involving a discharge may not bepermitted if it:– Would contribute to a violation of a State water

control standard– Would likely jeopardize the existence of a

listed species– Would contribute to a significant degradation

of waters of the U.S.

Section 404(b)(1) Guidelines

• Mitigation – Sequencing:– Avoidance– Minimization– Compensation

• On-site vs. off-site• In-kind vs. out-of-kind• Consolidated mitigation

Speaker 2: Craig Juckniess of U.S. Army Corps of Engineers

Law Seminars International | Marine Shoreline Development | 2/21/07 in Seattle, WA

8

Endangered Species ActCompliance

• ESA Section 7(a) requires Federalpermitting agencies to ensure thatauthorized actions are not likely to:– Jeopardize the continued existence

of a listed species–Destroy or adversely modify critical

habitat

Endangered Species ActCompliance

• Section 7(a) Consultation:– Informal consultation– Formal consultation– Incorporation of Biological Opinion provisions

Programmatic ESA Consultation• “Phase I” Programmatic Consultation –

Salmonid Species:– “Not likely to adversely affect” species/habitat– General conditions– Categories of activities covered:

• Temporary recreation structures• Replacement of pilings (up to 18)• Boatlift installation/replacement• Minor bank stabilization

Speaker 2: Craig Juckniess of U.S. Army Corps of Engineers

Law Seminars International | Marine Shoreline Development | 2/21/07 in Seattle, WA

9

Programmatic ESA Consultation

• “Phase I” Programmatic Consultation:– Piling Replacement consultation – special

conditions:• Up to 18 non-treated pilings• Cutting and capping of pilings• Use of construction barges• Placement within existing footprint

Programmatic Biological Opinion

• “Phase II” Programmatic BiologicalOpinion – Removal of Fish PassageBarriers:– Activities covered:

• Complete removal of stream crossing barriers• Tide gate removal or modification• Complete removal of debris jams• Removal of sediment bars

Programmatic Biological Opinion

• “Phase II” Programmatic BiologicalOpinion – Removal of Fish PassageBarriers:– Activities not covered:

• Streambank hardening or channelization with rockor concrete

• Removal of natural woody debris

Speaker 2: Craig Juckniess of U.S. Army Corps of Engineers

Law Seminars International | Marine Shoreline Development | 2/21/07 in Seattle, WA

10

Programmatic Biological Opinion

• “Standard Local Operating Procedures forEndangered Species” (SLOPES):– Extends to the lower Columbia River– Covers listed salmon and steelhead under

NMFS jurisdiction

Programmatic Biological Opinion

• “Standard Local Operating Procedures forEndangered Species” (SLOPES):– Covered activities:

• Site preparation for construction• Streambank stabilization• Over-water and in-water structures• Minor discharges for maintenance and repair

Essential Fish Habitat• Federal agencies permitting activities that

may adversely affect EFH must consult withthe NMFS

• Adverse effect:– Reduction in habitat quality or quantity– Alteration of the physical, chemical, or

biological characteristics of waters– Injury to benthic organisms or prey species

Speaker 2: Craig Juckniess of U.S. Army Corps of Engineers

Law Seminars International | Marine Shoreline Development | 2/21/07 in Seattle, WA

11

Clean Water Act Section 401

• A federally permitted discharge mustreceive a water quality certification

• A Section 404 permit will not be issueduntil:– A WQC is issued, or– Waiver of certification is received or presumed

Coastal Zone Management Act• A federally permitted activity must obtain a

CZMA consistency certification, if it:– Is located within the Coastal Zone, or– Will affect land/water uses or natural resources

of the Coastal Zone• A Corps permit will not be issued until:

– The State concurs with the consistencycertification, or

– Waiver of certification is received or presumed

National Historic Preservation Act

• A Federal permitting agency must considerthe effects of authorized undertakings onhistoric properties

• The terms of an MOA between the Corpsand the State/Tribal Historical PreservationOfficer will generally be incorporated intothe permit

Speaker 2: Craig Juckniess of U.S. Army Corps of Engineers

Law Seminars International | Marine Shoreline Development | 2/21/07 in Seattle, WA

12

Permit Processing Timelines

• Application complete (15 days)• Public Notice preparation (15 days)• Public Notice comment period (30 days)• ESA / CWA Section 401 / CZMA

coordination (30 + days)• EA preparation (30 + days)• Permit decision

Permit Special Conditions

• Public interest requirements• Water Quality Certification conditions• CZMA consistency concurrence conditions• Biological Opinion reasonable and prudent

measures• Historical Property “Adverse Effect” MOA

provisions

Permit Denial• Denial without prejudice

– Absence of a Water Quality Certification– Absence of a CZMA consistency concurrence

• Denial with prejudice– Contrary to the public interest– Fails to satisfy Section 404(b)(1) Guidelines– Would jeopardize the continued existence of a

listed species

Speaker 2: Craig Juckniess of U.S. Army Corps of Engineers

Law Seminars International | Marine Shoreline Development | 2/21/07 in Seattle, WA

13

Permit Modification, Suspension,and Revocation

• Re-evaluation of an issued permit• Negotiation of modifications• Suspension of permit• Considerations underlying permit

modification or revocation:– Degree of compliance– Change in circumstances– Settled expectations

Alternative Forms of Permits

• General Permits• Individual Permits

– Standard Individual Permits– Letters of Permission

• Abbreviated processing procedure• Minor Section 10 projects• No significant environmental impacts• Non-controversial

General Permits:Nationwide Permits

• NWP Conditions:– National general conditions– Regional general conditions – Corps– Regional general conditions – Other agency– Regional special conditions – Corps– Regional special conditions – Other agency

Speaker 2: Craig Juckniess of U.S. Army Corps of Engineers

Law Seminars International | Marine Shoreline Development | 2/21/07 in Seattle, WA

14

Nationwide Permits

• Environmental compliance requirements:– NEPA– CWA Section 404(b)(1) Guidelines– CWA Section 401– CZMA– ESA– Historic Properties

Nationwide Permits

• Examples of NWPs:– Routine maintenance of serviceable structures (NWP 3)– Bank stabilization (NWP 13)– Minor discharges (NWP 18)– Minor dredging (NWP 19)– Single-family housing (NWP 29)– Commercial/multi-unit building foundations (NWP 39)

Nationwide Permits• Features of NWP 29 – Single-family housing:

– Construction/expansion of single-family residence andattendant features

– Restrictions on waters in which NWP 29 is applicable– Restriction on amount of loss of waters that project

may cause– Pre-construction notification required– Requirement to maintain a vegetative buffer– Water Quality Certification– CZMA consistency concurrence

Speaker 2: Craig Juckniess of U.S. Army Corps of Engineers

Law Seminars International | Marine Shoreline Development | 2/21/07 in Seattle, WA

15

Nationwide Permits

• Re-issuance is imminent• New NWPs:

– Repair/replacement of structures/fills destroyedby storms, floods or other discrete event

– Structures related to commercial shellfishaquaculture

Regional General Permits

• Recreational watercraft lifts at residentialstructures – installation/replacement

• Residential overwater structures:– Lake Washington– Mid-Columbia / Lower Okanagan– Inland marine waters

Regional General Permits 3, 5, and 6

• Residential overwater structures:– Construction / modification– Private watercraft moorage and water-oriented

recreational use:• Piers• Ramps• Floats• Associated anchoring features• Moorage piling

Speaker 2: Craig Juckniess of U.S. Army Corps of Engineers

Law Seminars International | Marine Shoreline Development | 2/21/07 in Seattle, WA

16

Regional General Permits 3, 5, and 6• Principal common features:

– Pre-construction notification– One pier/ramp/float per residential property– Construction limitations

• Width of structure• Maximum surface coverage• Minimum height above ordinary high water mark• Work windows

– Section 401 and CZMA consistency– Programmatic ESA consultation

Permit Issuance Statistics

• Standard Individual Permits: 5%• General Permits: 91%

– NWPs: 41 %– RGPs: 50 %

• Letters of Permission: 4%• Permit denials: 0.4%

Administrative Appeals

• Permitting actions subject to appeal:– Applications denied with prejudice– Declined permits

• Appeals must state a basis, such as:– Procedural error– Incorrect application of law, regulation, or facts– Lack of jurisdiction

Speaker 2: Craig Juckniess of U.S. Army Corps of Engineers

Law Seminars International | Marine Shoreline Development | 2/21/07 in Seattle, WA

17

Emergency Permit Processing

• Expedited evaluation of permit applications• Justifications for emergency processing

include unacceptable:– Hazard to life– Hazard of a significant loss of property– Hazard of an immediate, unforeseen, and

significant economic hardship

Monitoring and Compliance• Inspection and monitoring of compliance with

conditions of permit• Violations of permit conditions:

– Resolution by mutual agreement between Corps andpermittee

– Administrative order requiring corrective action– Suspension / revocation of permit– Administrative civil penalty proceedings– Criminal or judicial civil penalty proceedings

U.S. Army Corps of EngineersSeattle District

• District Engineer:– Colonel Mike McCormick; (206) 764-3690

• Regulatory Branch Chief:– Muffy Walker; (206) 764-6915

• Office of Counsel:– Siri Nelson, District Counsel; (206) 764-6834– Craig Juckniess, Dep. Dist. Counsel; (206) 764-6943