Resolving the Tension Between Agriculture and Water Quality in Wisconsin

Wisconsin is known for its invaluable array of water resources on the one hand and its heritage as an agricultural powerhouse on the other. At first glance, it seems that Wisconsin policymakers face a dilemma, because these two aspects of the state’s identity can be in tension with one another. The federal government’s most recent National Water Quality Assessment concluded that agricultural runoff and the like are the leading cause of adverse water quality impacts on rivers and streams, and the third-leading cause of such impacts on lakes. On March 18 (which also happened to be National Agriculture Day) the Marquette Water Law and Policy Initiative, part of the Law School’s broader Lubar Center for Public Policy Research and Civic Education, hosted an event to help illuminate a path forward for agriculture and water to coexist. The speakers at the event generally delivered a hopeful message anticipating improved cooperation among farmers, affected citizens, the conservation community, and state and local governments.

The event’s keynote speaker, Dr. Marin Skidmore of the Department of Agricultural and Consumer Economics at the University of Illinois Urbana-Champaign, presented the findings of her team’s study of the effectiveness of local (county-level) regulations targeted at controlling nonpoint source pollution from Wisconsin dairy farms. As Dr. Skidmore explained, by definition nonpoint source pollution does not emanate from a single point; rather, it typically consists of diffuse runoff across broad landscapes. In the case of agriculture, that runoff may carry with it fertilizer or manure that has been applied to farm fields and deposit those pollutants in surface waters. Agriculture is a major economic and cultural force in the state, she acknowledged, but it also often creates serious water quality problems resulting from the “enormous nutrient [manure] output coming from dairy production.” That can impact recreational activities and even public health, she said.

The pollutant load can cause hypoxia, or “dead zones” in surface waters, and in some Wisconsin communities, can contaminate drinking water supplies with elevated levels of nitrates and bacteria. This has led to substantial community opposition to large-scale “concentrated animal feeding operations” – defined by state law as an animal feeding operation with 1,000 animal units or more – in some parts of the state.

Skidmore and her team set out to find a way to test Wisconsin’s efforts to manage the pollution’s impacts while maintaining an industry so important to the state. Nonpoint source pollution is exceedingly difficult to control. It isn’t well regulated under federal or state laws, including the Clean Water Act, Skidmore said, partly because “we don’t have a reliable way to map and quantify the amount of pollution coming from one single farm.” As a result, policy makers can’t use traditional regulatory tools such as command-and-control regulation, pollution taxes, or a cap-and-trade system.

But there is hope, Skidmore said, because “Wisconsin is innovative.” Its leaders have tried solutions that other states haven’t. Skidmore cited the state’s farmer-led watershed groups, farmland preservation program, and water quality trading program as examples. But the program that most captured the attention of Skidmore and her research team was the state government’s decision to delegate the option to regulate manure management to county governments – a program unheard of in other states. The delegation was intended not as a substitute for state authority, but as a complement or addition to it. Perhaps the counties could serve as “laboratories of democracy” for the state, in the same way that the states have sometimes done for the federal government.

So what happened when counties got involved in writing and enforcing local manure management ordinances? By comparing many different county ordinances – and the resulting water quality benefits (or lack thereof) – Skidmore’s team found that some aspects of the ordinances had a measurable impact on water quality, while others did not. The most significant positive impact on water quality resulted from adding a requirement that farmers prepare a “nutrient management plan.” That effectively means a plan for the rate, timing, and method of nutrient application to farm fields. If farmers fine-tune those variables, they can dramatically reduce pollutant runoff to surface waters, Skidmore said, because a lot of the problem comes from nutrient overapplication above what the crop needs. That leaves the excess nutrients vulnerable to precipitation-induced runoff.

Developing a nutrient management plan can be a “light bulb moment” for some farmers, Skidmore found. It can significantly adjust their behavior in the near term and even save them money by decreasing the amounts of fertilizer applied to the fields. And because the state has offered some funding to incentivize the development of the plans, the process can be a win-win for farmers and the environment

Following Skidmore’s presentation, a panel of Wisconsin experts offered their own perspectives on the interface between agriculture and water quality.

Brian Weigel, the Deputy Administrator for the Division of External Services at the Wisconsin Department of Natural Resources, noted that state governments have sometimes been caught in the middle of struggles between farmers, affected citizens, and environmentalists. “There are myriad opportunities for change,” he said, but that won’t happen until the various factions move forward together. DNR is trying to do its part, he said, by developing an office of agriculture and water quality with two goals: trying to communicate effectively with stakeholders, and connecting with governmental partners in neighboring agricultural states to explore best practices for science and policy. But government won’t have sufficient resources to do it alone, he predicted; society and culture need to change, with consumers demanding more sustainably-produced food, to really drive reforms.

“Farmers are the original environmentalists,” because they see firsthand the impacts of pollution on nearby drinking water sources, said Jason Mugnaini, Executive Director of Government Relations at the Wisconsin Farm Bureau. Mugnaini predicted that the farm community in the state will soon enter a time of transition, with farmers open to new conservation practices in part because of government-funded incentive programs. He conceded, though, that some farmers are afraid to seek compliance assistance because of concerns over enforcement actions that might result.

Sara Walling, the Water and Agriculture Program Director at Clean Wisconsin, an environmental advocacy group that has often squared off in litigation with agricultural interests over water quality concerns, emphasized the need for a collaborative approach that includes both famers and affected citizens. “We recognize that there are a lot of farmers out there who are very interested in doing what they can to change the impacts they are having on water quality,” she said. Part of Clean Wisconsin’s role is helping to bridge some of the gaps in understanding the impacts of agriculture on water quality, Walling stated.

Cheryl Heilman, the DNR’s Chief Legal Counsel, reiterated that the agency’s focus is on protecting water quality. Existing laws aren’t enough to solve the problem, and even regulation at the county level has sometimes created a “patchwork” of requirements, with some very effective and others not. Like the other panelists, she emphasized the need for more mutual support among the factions. What can best drive such cooperation? “I think we should have more forums like this,” she said.

 Vide of the full program is available here.

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Remembering Justice David T. Prosser, Jr.

David T. Prosser, Jr., a prominent figure in Wisconsin for the last forty-five years, held many significant positions during his distinguished career of public service: Wisconsin Supreme Court Justice, Speaker of the Wisconsin Assembly, Commissioner of the Wisconsin Tax Appeals Commission, and Outagamie County District Attorney, among others. But after he passed away this month at the age of 81, those who gathered to celebrate his life remembered him not only as a hard worker and skilled jurist but also—and perhaps more importantly—as a trusted mentor, loyal friend, and devoted family member.

In my personal experience, Justice Prosser certainly deserved those accolades. I served as his law clerk during the Wisconsin Supreme Court’s 2004-2005 term. That year we worked elbow to elbow, and I observed firsthand his skill as a writer, his work ethic, and his wry wit. Upon arriving at the state capitol in early August 2004, fresh out of Marquette Law School, I was as nervous as could be. Justice Prosser immediately put me at ease, and although I made many mistakes, he never lost patience with me. That year on the Court was perhaps the greatest experience of my professional career and I often reflect on those times. I certainly would not be where I am today without him.

As with many of those whose lives he touched, Justice Prosser always had my best interests in mind. He kept in touch with me and followed my career even long after I worked for him. A few years after my clerkship had ended, I needed a letter of recommendation in a short time frame during a busy period at the court. He agreed to write on my behalf. After apologizing for the quick turnaround, I asked when he might be able to get it in the mail—to which he answered, “we’ll see.” The next evening, there was a knock at my door. There on my doorstep was Justice Prosser, with the letter in hand. He had not only written it in less than a day, but also driven two hours each way to ensure it arrived on time. I invited him in, but he declined, saying, “I’m sure you have better things to do than have dinner with me.” His humility was one of his defining features. My experience was not unique. Those gathered at his funeral told many stories of a similar nature, explaining how Justice Prosser dropped everything to help a friend or family member in need.

Justice Prosser was a great friend of Marquette Law School, often appearing at events, lectures, dinners, and the like. Many of his clerks were Marquette lawyers, and they went on to successful careers as judges and lawyers in a variety of practice settings. He was featured in the Summer 2017 edition of Marquette Lawyer magazine, highlighting how he enjoyed hiring law clerks from Marquette and how much they helped him.

The previous year, in an interview with the Wisconsin State Bar on the occasion of his retirement from the Wisconsin Supreme Court in 2016, Justice Prosser said he wanted to be remembered as an important decision-maker, an independent thinker, and a storyteller. He was certainly all those things, but also much more to those of us who had the good fortune to know him. As we continue our journeys without him, we honor the person he was and the life he led. Rest in peace, Justice Prosser. You will be missed.

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Will Wisconsin Chart Its Own Course on Environmental Issues?

The exterior of the U.S. Supreme Court building with white stone columns and a white facade.

In a series of recent cases, the United States Supreme Court has sharply restricted the power of the United States Environmental Protection Agency to effectively exercise jurisdiction over natural resources within the states. These include West Virginia v. EPA (endorsing the “major questions doctrine” and restricting EPA’s power to require cleaner energy generation without clear congressional authorization); Sackett v. EPA (limiting the scope of EPA’s authority over “waters of the United States,” and eliminating federal authority over many wetlands); Loper Bright Enterprises v. Raimondo (overruling the Chevron doctrine of deferring to agency interpretations of law in most circumstances); SEC v. Jarkesy (holding that agencies may not employ in-house tribunals, in lieu of jury trials, when seeking civil penalties); and Corner Post v. Board of Governors, FRS (pausing the statute of limitations to challenge agency regulations until the plaintiff suffers injury).

The shift away from federal power elevates the role states can play in charting a course on environmental issues. The Sackett Court emphasized that states, not the EPA, hold the “primary responsibilities and rights . . . to prevent, reduce, and eliminate pollution” and “to plan the development and use . . . of land and water resources.” Some evidence supports the idea that states will be eager to fill gaps in federal regulation of the environment and corresponding enforcement activities. Wisconsin, for example, has a rich history of water law. All the way back in 1853, the Wisconsin Supreme Court endorsed the principle that “if [a] stream is navigable in fact, the public have the right to use it for the purposes of navigation, and the right of the owner [of abutting land] is subject to the public easement.” Jones v. Pettibone, 2 Wis. 308 (1853). In the 20th century, the state became a national leader in conservation and was at the vanguard of the development of the public trust doctrine.

Even in the 21st century, Wisconsin authorities have sometimes stepped in to protect the state’s natural resources when federal jurisdiction receded. In 2001, for example, the Supreme Court invalidated the “migratory bird rule,” under which federal agencies had exercised jurisdiction over pollutant discharges into certain isolated intrastate waters. The decision, Solid Waste Agency of Northern Cook County v. U.S. Army Corps of Engineers, removed a sizeable percentage of wetlands from federal protection. The Wisconsin Legislature acted almost instantly, taking only a few months to enable state control over such discharges by creating a new category of “nonfederal wetlands.” The state law expressly addressed the Supreme Court’s decision. By its terms, it applies when discharges into wetlands are determined “not to be subject to regulation under [the federal Clean Water Act] due to the decision in Solid Waste Agency of Northern Cook County v. U.S. Army Corps of Engineers . . . or any subsequent interpretations of that decision by a federal agency or by a federal district or federal appellate court that applies to wetlands located in this state.” Wis. Stat. 281.36(1m)(a)1 (as created by 2001 Wisconsin Act 6). The act effectively restored protection of wetlands that the Supreme Court removed from federal jurisdiction in SWANCC, albeit under state authority. Later, the state implemented an innovative water quality trading program to help curb nonpoint source pollution and meet the state’s aggressive water quality limits for phosphorous pollution. Wisconsin citizens can be proud of the state’s progress in those areas and many others.

But more recent developments are less promising. The ballyhooed “Year of Clean Drinking Water in Wisconsin” was less successful than Governor Evers probably hoped. Similarly, after Assembly Speaker Robin Vos created a “Water Quality Task Force” in 2019, all thirteen of the bills it proposed died in the state Senate. In 2017, the Legislature removed some smaller wetlands from protection under state law, backtracking from the 2001 enactment. And the past few years have been marked by political skirmishes over the power of state agencies to enact groundwater standards for PFAS and other chemicals, disputes over the Department of Natural Resources’ power to require environmental cleanups, and the delayed release of state funds earmarked for remediation activities.

Wisconsin’s uneven record on environmental protection is certainly not unique. But the state–or rather, all the states–are being thrust to the forefront in such matters. Of course, a state will not necessarily regulate anew, or step up enforcement, just because it has the opportunity to do so. And any reckoning with environmental issues will no doubt have to wait until after the November elections currently dominating politics. Whenever the dust settles, it will be interesting to see how states respond in the new era of a somewhat-diminished EPA.

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