July 7, 1998
Senator John H. Kerr, III North Carolina General Assembly Senate Chamber Room 526 Legislative Office Building Raleigh, North Carolina 27601-2808
RE: Advisory Opinion: Proposed NPDES Permit No. NC0078344 for Smithfield Packing Company, Inc.; G.S. 143-215.1
Dear Senator Kerr:
You have requested our review of three permit conditions proposed in the water quality permit, NPDES Permit No. NC0078344, for Smithfield Packing Company, Inc. ("Smithfield") by the Division of Water Quality ("DWQ"). The conditions are set out verbatim in the attached copy of the pertinent page of the permit entitled "Supplement to Effluent Limitations and Monitoring Requirements." Currently, the conditions have been proposed to be included in the permit, and a public hearing/comment period. See G.S. 143-215.1(c)(3). Two public hearing officers have been assigned to receive the comments and to prepare recommendations to the Director of the Division of Water Quality regarding all facets of permit issuance. Due to the ongoing nature of the considerable debate over these conditions, specific suggestions for possible modifications of the permit conditions must await the opportunity to discuss the issues and the public comment with the assigned hearing officers. Your first question is as follows:
1. I am told that the express production limits have never before been put in our NPDES permits
– is this true? Does DENR (or the EMC) have authority to place express limits on production, as opposed to on pollutants in NPDES permits? If so, what is the basis of that authority?
The condition you reference is Special Condition A(4) – Production Cap Condition. It is my understanding that initially the language for this condition was mutually acceptable to the permittee and DWQ, and that DWQ’s interest in its inclusion is triggered primarily by its concern for the "cumulative effects of permit decisions" and by the compliance history of Smithfield.
Various commentators have objected to the production cap condition as outside the authority of DWQ and as having no relationship to the actual effluent discharged from the plant. While I believe these are valid considerations, it is my opinion that there is authority in N.C.G.S. § 143
215.1 for the inclusion of a condition such as this one in NPDES permits. The use of this authority must be narrowly-tailored and is triggered by the unique circumstances of this permit:
(1) Cumulative effects: The collective environmental effects from the increased number of hogs grown in North Carolina in the 1990’s, and the overall compliance problems engendered thereby, has been well documented. The growth of this industry since the Smithfield plant was first permitted illustrates the relationship between slaughter capacity and other permitted production interests like the hog farms that serve as raw material suppliers. DWQ may legally draw inferences from such relationships and seek to address the "cumulative effects of its permit decision" with regard to Smithfield. N.C.G.S. § 143-215.1(b)(2).
(2) Compliance history: As you may be aware, the permittee in this instance — Smithfield Packing Company — operates processing plants in a number of states and conducts hog production operations in North Carolina through a subsidiary, Brown’s of Carolina, Inc. DWQ has reviewed the environmental compliance record of the company and its various affiliates and subsidiaries and has found the following: the Smithfield plant in Virginia was the subject of a record fine by the Environmental Protection Agency; its Bladen County facility previously has been in non-compliance and currently is the subject of Notices of Violation for making an outlet into waters of the State and for several effluent limit violations of its NPDES permit; and its subsidiary contract grower has also been the subject of multiple enforcement actions. Under
N.C.G.S. § 143-215.1(b)(4)b.2., this history is a relevant consideration for DWQ in proposing permit conditions necessary to achieve water quality goals.
(3) Initial acceptance by permittee: According to the information provided our office by DWQ, Smithfield volunteered to accept this permit condition and to not contest its inclusion in the permit. The company has since indicated opposition to the term. The company’s participation in the drafting of the condition is a factor to be considered by DWQ, but as a legal matter its consent or withdrawal is not dispositive.
In addition to the specific circumstances enumerated above, it is worth noting that the authority of the Environmental Management Commission ("EMC"), from which DWQ receives its permitting delegation, over permitting is quite comprehensive. A complete inventory of that authority is not necessary, but the following sections of N.C.G.S. §143-215.1(b) are relevant to your inquiry:
- The Commission shall act on all permits so as to prevent, so far as reasonably possible, considering relevant standards under State and federal laws, any significant increase in pollution of the waters of the State from any new or enlarged sources. ….
- The Commission shall also act on all permits so as to prevent violation of water quality standards due to the cumulative effects of permit decisions. Cumulative effects are impacts attributable to the collective effects of a number of projects and include the effects of additional projects similar to the requested permit in areas available for development in the vicinity. All permit decisions shall require that the practicable waste treatment and disposal alternative with the least adverse impact on the environment be utilized. ….
4. The Commission shall have the power:
- a.
- To grant a permit with such conditions attached as the Commission believes necessary to achieve the purposes of this Article.
- b.
- To require that an applicant satisfy the Department that the applicant, or any parent, subsidiary, or other affiliate of the applicant or parent: …
2. Has substantially complied with the effluent standards and limitations and waste management treatment practices applicable to any activity in which the applicant has previously engaged, and has been in substantial compliance with other federal and State
laws, regulations, and rules for the protection of the environment.
Your request also asks for our views on the legality of two other proposed permit conditions:
- (1)
- a ban on Smithfield purchasing for processing "any swine finished on any farm that is documented by the Division [of Water Quality] as having received a Notice of Violation (NOV) during the immediately preceding twelve-month period" (emphasis added); and
- (2)
- a ban on Smithfield purchasing "[d]uring the period of any legislatively-imposed swine farm moratorium…any swine produced on any new or expanded swine farm which is permitted for operation on or after February 1, 1998."
With regards to (1), the ability of DWQ to independently regulate suppliers (particularly those who are not owned, operated by, or otherwise associated with Smithfield Foods), the nature of the relationship between suppliers and Smithfield, the retroactive application of the terms of this condition, and the need for definitiveness in the phrase "Notice of Violation" are all factors which must be taken into account in order to determine the legality of these conditions. Our office believes that this provision, as written, is vulnerable to being struck down.
As for (2), this condition raises the question of whether DWQ, without compliance matters at issue, can on the one hand permit a farm under the new and innovative technology exception to the current moratorium and at the same time deny these few farmers the ability to bring their product to market in this manner. Again, it is our opinion that this provision, as written, would be struck down if challenged.
Both of these provisions also raise the problem of the State and Smithfield affecting the rights of hog farmers who are not a party to the permitting agreement.
I hope this response has been instructive. These issues are quite significant, and where definitive guidance has not yet been provided, I trust you will agree that the proper forum for that is in consultation with the assigned hearing officers.
signed by:
Daniel C. Oakley Senior Deputy Attorney General