Identify Draft Permit Issues

---
name: identify-draft-permit-issues
task_id: environmental-esg/identify-draft-permit-issues
description: Guides preparation of an NPDES permit issues memorandum by systematically evaluating draft permit conditions against applicable water pollution control requirements and supporting technical documents to identify legal and technical deficiencies for public comment strategy.
activates_for: [planner, solver, checker]
---

# Skill: Identify Issues in Draft NPDES Permit Conditions for Recycling Facility

## 1. Subject-matter triage
- Treat the draft permit as one document in a permit record; review it together with the application, fact sheet or statement of basis, technical reports, pilot or bench data, prior permits, monitoring summaries, and stakeholder correspondence.
- Identify the facility’s discharge pathways, pollutant profile, receiving water context, and whether the permit is addressing conventional pollutants, toxics, nutrients, metals, PFAS or other emerging contaminants, and stormwater or process-water pathways.
- Determine whether the review is a single-permit analysis or a multi-permit comparison; if multiple permits or permit periods are in scope, analyze each separately rather than blending them.
- Flag whether the public comment strategy is aimed at narrowing conditions, preserving appeal issues, or forcing a better technical record; that goal should shape issue framing and recommended remedy.

## 2. Failure modes the skill is correcting
- Reviews conditions in isolation instead of testing them against the application record, fact sheet, and supporting technical documents that supply the legal and scientific basis for the draft.
- Describes deficiencies in general terms without tying each one to a specific permit condition, applicable standard, data gap, or methodological failure.
- Misses emerging contaminant issues, pilot-study limitations, or inconsistent assumptions about treatment performance and pollutant loadings.
- Fails to test whether monitoring is actually capable of showing compliance with each limit, including method, frequency, sample type, detection limits, and averaging period.
- Does not compare the draft permit against prior permit terms or other incorporated materials to identify relaxation, omission, or inconsistency.
- Treats stakeholder comments as background noise instead of extracting independent technical and legal points that strengthen a public comment record.
- States conclusions without citing the controlling statutory, regulatory, or guidance basis that supports the critique.
- Produces diagnosis without a concrete comment path, leaving the issues memo detached from public-comment use.

## 3. Legal frameworks / domain conventions that apply
- Clean Water Act and NPDES permitting: 33 U.S.C. §§ 1311, 1312, 1313, 1342; implementing NPDES regulations in 40 C.F.R. Part 122.
- Technology-based effluent limits and water-quality-based effluent limits: confirm whether the draft reflects applicable effluent limitation guidelines, best professional judgment, or state water quality standards.
- Monitoring and reporting requirements: assess against 40 C.F.R. §§ 122.41, 122.44, and related permit-writing requirements for methods, frequency, and compliance demonstration.
- Narrative and numeric water quality standards: review state standards and antidegradation requirements where the discharge may affect the receiving water.
- Anti-backsliding and permit modifications: compare against prior permit conditions under CWA and applicable regulations where the draft relaxes existing obligations.
- Whole effluent toxicity, stormwater, sludge, pretreatment, or special-condition authorities where the draft uses them to manage facility-specific risks.
- Permit fact sheet / statement of basis conventions: the agency should explain the factual and legal basis for each material condition; weak rationale can support comments on arbitrariness or insufficiency.
- General administrative-law norms: an unsupported permit condition, unexplained data choice, or mismatch between record and conclusion is a target for comment.

## 4. Analytical scaffolds
- Work condition-by-condition in permit order: discharge authorization, effluent limits, monitoring, reporting, special conditions, compliance schedules, and administrative provisions.
- For each condition, identify:
  - the exact permit section or requirement;
  - the controlling legal or technical standard;
  - the flaw in the draft;
  - the record support showing the flaw;
  - the consequence if the condition stands; and
  - the public-comment remedy requested.
- For each effluent limit, test basis, pollutant coverage, averaging period, units, and whether the limit matches the discharge characterization and receiving-water risk.
- For each monitoring term, test whether the method, frequency, sample type, detection limit, flow measurement, and reporting format can actually demonstrate compliance.
- For each emerging contaminant issue, ask whether the permit’s treatment assumptions, analytical methods, and monitoring program are adequate in light of the pollutant profile and any pilot or bench-scale evidence.
- For each fact-sheet deficiency, identify whether the agency failed to explain data selection, rejected contrary evidence without explanation, or made assumptions unsupported by the record.
- For each stakeholder point, decide whether it independently reveals a permit defect, corroborates a defect already identified, or supports a stronger remedy.
- When prior permit conditions exist, compare them to the draft and test any relaxation under anti-backsliding principles and any stated regulatory exception.
- Close each issue with three moves:
  - scale it using a concrete record figure, permit term, or other source-document metric;
  - cross-reference the interacting condition, attachment, schedule, or incorporated report; and
  - state the downstream consequence for compliance, operations, permitting risk, or litigation posture.
- State a severity assessment for every issue using one uniform ordinal scale defined once in the memo, and keep that severity tied to the strength and impact of the issue.
- If the record contains multiple pollutants, outfalls, or permit periods, enumerate them before analysis and address each one separately unless the memo expressly states that only one is in scope.

## 5. Vertical / structural / temporal relationships
- Compare application data to draft requirements to expose mismatches between what the facility disclosed and what the permit now demands.
- Compare draft conditions to prior permit terms to identify relaxation, omission, or unexplained change.
- Compare fact-sheet reasoning to supporting studies to determine whether the agency’s legal conclusion tracks the technical record.
- Compare pilot-scale assumptions to real-world operating conditions, including scale, duration, influent variability, and seasonal effects.
- Compare facility-specific conditions to broader regulatory developments where the permit appears to be filling a gap with ad hoc controls.
- Track how one condition depends on another: a limit may be unsupported if the monitoring program cannot measure it, and a special condition may be defective if the fact sheet never justifies it.

## 6. Output structure conventions
- Write the deliverable as a permit issues memorandum, not a narrative critique.
- Use a conventional legal-memo shape: Executive Summary; severity key; issue-by-issue analysis; summary table; and recommended public-comment actions.
- Define the severity scale once at the top, then apply it consistently to every issue entry.
- In the issue-by-issue section, make each entry self-contained and use the same internal logic: condition, governing authority, deficiency, record support, consequence, and requested fix.
- In the summary table, include permit section, issue category, severity, and recommended comment position.
- When stating legal propositions, cite the controlling authority by name and section or part, rather than describing the rule abstractly.
- Keep the memo oriented to public comment strategy: frame each issue as a proposed comment point, not only as an internal observation.
- End with a Recommended Actions block that tells the reviewer what to do next, who should do it, and when it should happen relative to the comment deadline or permit milestone.
- Use the deliverable filename exactly as instructed: permit-issues-memorandum.docx.