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`IN THE UNITED STATES DISTRICT COURT
`FOR THE NORTHERN DISTRICT OF INDIANA
`HAMMOND DIVISION
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`UNITED STATES OF AMERICA,
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`and
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`THE STATE OF INDIANA,
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`Plaintiffs,
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`Civil Action No.
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`Judge
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`v.
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`SANITARY DISTRICT OF HIGHLAND,
`INDIANA; and the TOWN OF GRIFFITH,
`INDIANA,
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`Defendants.
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`COMPLAINT
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`The United States of America, by authority of the Attorney General of the United States,
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`and acting on behalf of the Administrator of the United States Environmental Protection Agency
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`(“EPA”), and the State of Indiana (the “State”), by the authority of its Attorney General and on
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`behalf of the Indiana Department of Environmental Management (“IDEM”), allege as follows:
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`NATURE OF ACTION
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`1.
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`This is a civil action brought by the United States and the State pursuant to the
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`Clean Water Act (“CWA”), 33 U.S.C. § 1319(b) and (d), seeking injunctive relief and the
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`assessment of civil penalties against the Sanitary District of Highland, Indiana (“Defendant
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`Highland”) and the Town of Griffith, Indiana (“Defendant Griffith”). The Complaint alleges that
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`Defendants Highland and Griffith had numerous unauthorized and illegal discharges of sanitary
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`sewage from their sanitary sewer collection systems to navigable waters, including the Little
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`Calumet River and/or adjacent wetlands in violation of 33 U.S.C. § 1311(a); Title 13 of the Ind.
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`Code; and Title 327 of the Indiana Administrative Code (“IAC”), Articles 2 and 5. The
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`Complaint also alleges that Defendants Highland and Griffith have failed to comply with
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`administrative orders issued to them by EPA pursuant to the CWA, 33 U.S.C. §§ 1318(a) and
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`1319(a).
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`2.
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`Defendants are joined in the same cause of action pursuant to Fed. R. Civ. P.
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`20(a)(2) because the claims against Defendants Highland and Griffith are similar in nature. In
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`addition, both communities rely on the neighboring town of Hammond, Indiana to treat all of
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`their sanitary sewage and pay relative percentages of Hammond’s capital investments in its
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`wastewater conveyance and treatment infrastructure.
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`JURISDICTION, VENUE, AUTHORITY, AND NOTICE
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`3.
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`This Court has jurisdiction over the subject matter of this action pursuant to 33
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`U.S.C. § 1319(b), and 28 U.S.C. §§ 1331, 1345, and 1355. The State is a party to this action
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`pursuant to 33 U.S.C. § 1319(e), and 28 U.S.C. § 1367(a).
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`4.
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`This Court has supplemental jurisdiction over the State law claims alleged here
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`pursuant to 28 U.S.C. § 1367(a) because the State claims are related to the federal claims and
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`form part of the same case or controversy.
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`5.
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`Venue is proper in the Northern District of Indiana pursuant to 28 U.S.C.
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`§ 1391(b) and 33 U.S.C. § 1319(b) because it is the judicial district where Defendants Highland
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`and Griffith are located and where the alleged violations occurred. Venue in this District is also
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`proper under 28 U.S.C. § 1367(a).
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`6.
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`As a signatory to this Complaint, the State has actual notice of the commencement
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`of this action in accordance with 33 U.S.C. § 1319(b).
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`2
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`7.
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`The Attorney General of the United States is authorized to appear and represent
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`the United States in this action pursuant to 33 U.S.C. § 1366, and 28 U.S.C. §§ 516 and 519.
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`8.
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`The Indiana Attorney General is authorized to appear and represent the State in
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`this action pursuant to Ind. Code §§ 4-6-3-2(a), 13-30-4-1, and 13-14-2-6.
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`THE PARTIES
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`9.
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`Plaintiff United States is acting at the request and on behalf of the Administrator
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`of EPA. Plaintiff the State of Indiana is acting at the request and on behalf of the Commissioner
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`of IDEM. Plaintiff, the State of Indiana is a “State” and “person” within the meaning of the
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`CWA, 33 U.S.C. § 1362(4) and (5).
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`10.
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`The CWA requires that a state be joined as a party when the United States sues a
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`municipality of the state. 33 U.S.C. § 1319(e). Here, the State is a co-plaintiff, along with the
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`United States, in this action. IDEM is authorized to implement the CWA within the State. Ind.
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`Code § 13-13-5-1(1). Indiana regulations incorporate the CWA, 33 U.S.C. § 1251 et seq., by
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`reference. 327 IAC 5-2-1.5(1).
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`11.
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`Defendant Highland is a political subdivision of the State. Defendant Highland
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`owns and operates a sanitary sewer collection system in the Town of Highland, Indiana.
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`12.
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`Defendant Griffith is an incorporated township in Lake County, Indiana.
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`Defendant Griffith owns and operates a sanitary sewer collection system and equalization basin
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`in the Town of Griffith, Indiana.
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`13.
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`Defendants Highland and Griffith are “municipalities” and “persons” within the
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`meaning of the CWA, 33 U.S.C. § 1362(4) and (5).
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`GOVERNING LAW
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`14.
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`The objective of the CWA is to restore and maintain the chemical, physical, and
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`biological integrity of the Nation’s waters. 33 U.S.C. § 1251.
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`15.
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`To promote the objective of the CWA, the CWA and Indiana Code prohibit the
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`“discharge of any pollutants” by any person except, among other things, in compliance with a
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`NPDES permit issued by an authorized state pursuant to 33 U.S.C. § 1342(b). 33 U.S.C.
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`§ 1311(a); Ind. Code 13-30-2, 327 IAC 5-2-2.
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`16.
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`The CWA defines “discharge of a pollutant” to mean, among other things, “any
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`addition of any pollutant to navigable waters from any point source.” 33 U.S.C. § 1362(12). See
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`also 327 IAC 5-1.5-11 (similarly defining “discharge of a pollutant”).
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`17.
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`The CWA and Indiana regulations define “pollutant” to include sewage. 33
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`U.S.C. § 1362(6); 327 IAC 5-1.5-41.
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`18.
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`Under the CWA and Indiana Code, a “point source” is “any discernible, confined
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`and discrete conveyance, including but not limited to any pipe, ditch, channel, tunnel . . . from
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`which pollutants are or may be discharged.” 33 U.S.C. § 1362(14); 327 IAC 5-1.5-40.
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`19.
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`The CWA defines “navigable waters” as “the waters of the United States,
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`including the territorial seas.” 33 U.S.C. § 1362(7). “Waters of the United States” have been
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`further defined to include, among other things, waters that are currently used, were used in the
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`past, or may be susceptible to use in interstate or foreign commerce, interstate waters, tributaries
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`of such waters, and wetlands adjacent to the foregoing waters. 40 C.F.R. § 122.2.
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`20.
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`Indiana law defines “waters of the state” to include “the accumulations of
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`4
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`water, surface and underground, natural and artificial, public and private; or a part of the
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`accumulations of water that are wholly or partially within, flow through, or border upon
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`Indiana.” Ind. Code. 13-11-2-265.
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`21.
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`33 U.S.C. § 1319(a)(3), states that whenever the Administrator of EPA finds a
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`person in violation of 33 U.S.C. § 1311(a), the Administrator may issue an order requiring that
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`person to comply with the provisions of the CWA.
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`22.
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`The CWA provides that EPA is authorized to commence a civil action for
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`appropriate relief, including a permanent or temporary injunction, when any person violates 33
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`U.S.C. § 1311. Indiana is authorized to enforce its water pollution control laws under Ind. Code
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`§§ 13-30-1-1, 13-30-3, or 13-14-1-12.
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`23.
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`Any person who violates 33 U.S.C. § 1311, or an order issued pursuant to 33
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`U.S.C. § 1319(a), is subject to a civil penalty. The applicable civil penalty levels are up to
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`$37,500 per day for each violation occurring between January 12, 2009 and November 2, 2015;
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`and $59,973 per day for each violation occurring after November 2, 2015. See 40 C.F.R. § 19.4.
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`24.
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`The State is authorized to commence a civil action for appropriate relief,
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`including injunctive relief and civil penalties, to address violations of Title 327 of the Indiana
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`Administrative Code, Article 5. 327 IAC 5-2-20 and Ind. Code §§ 13-30-4-1 and 13-14-2-6. This
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`relief may include a permanent or temporary injunction, as well as a civil penalty of up to
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`$25,000 per day for each violation.
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`5
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`USDC IN/ND case 2:22-cv-00086-PPS-APR document 1 filed 04/07/22 page 6 of 15
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`GENERAL ALLEGATIONS
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`A.
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`Defendant Highland
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`25.
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`Defendant Highland owns and operates a sanitary sewer collection system that
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`conveys sewage from the Town of Highland, Indiana to the Hammond Sanitary District’s
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`(“HSD”) wastewater collection system and wastewater treatment plant for treatment.
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`26.
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`Defendant Highland does not have a NPDES Permit and is, therefore, prohibited
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`from “discharg[ing] any pollutants” under the CWA, 33 U.S.C. § 1311(a); Ind. Code 13-30-2.
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`27. When Defendant Highland’s sanitary sewer collection system gets overloaded, the
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`system overflows in several different locations and discharges untreated sewage to the Little
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`Calumet River or the Cady Marsh Ditch, a tributary of the Little Calumet River with perennial
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`flow. The Cady Marsh Ditch flows to Hart Ditch and then to the Little Calumet River.
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`28.
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`Defendant Highlands’s sanitary sewer collection system is a “point source” as that
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`term is defined in 33 U.S.C. § 1362(14) and 327 IAC 5-1.5-40.
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`29.
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`The Little Calumet River and the Cady Marsh Ditch are “navigable water[s]” of
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`the United States within the meaning of 33 U.S.C. § 1362(7) as well as “water[s] of the state” of
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`Indiana as defined in Ind. Code § 13-11-2-265.
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`30.
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`On August 10, 2011, under the authority of 33 U.S.C. §§ 1318(a) and 1319(a),
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`EPA issued an Administrative Order (“2011 Order”) to Defendant Highland to address recurring
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`sanitary sewer overflows (“SSOs”) from its sewer collection system.
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`31.
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`In the 2011 Order, among other things, EPA required Defendant Highland to
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`submit a Sewer System Evaluation Study (“SSES”), which was to include a plan to eliminate all
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`SSOs.
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`6
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`32.
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`Defendant Highland submitted its SSES to EPA pursuant to the order. The SSES
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`proposed a plan that involved building a wastewater storage tank in Highland and negotiating
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`with HSD to increase Highland’s contracted pumping capacity to the HSD system.
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`33.
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`In the interim, EPA requested that Highland develop an alternative plan to
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`prioritize the implantation of storage tanks and relief sewers. Accordingly, Highland proposed an
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`“Interim Plan” in May 2014 that included construction of a storage tank, replacing a sewer
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`interceptor, and conducting certain monitoring within two and a half years.
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`34.
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`EPA approved the Interim Plan on August 25, 2014 and the schedule to
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`implement the Interim Plan became enforceable under the 2011 Order.
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`35.
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`Defendant Highland failed to obtain the required construction permit and thus,
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`never implemented the Interim Plan.
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`36.
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`On October 15, 2015, EPA sent a Notice of Violation letter to Defendant
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`Highland formally notifying Highland of its noncompliance with the 2011 Order and instructing
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`Highland to either develop a new plan or begin implementing the Interim Plan without delay.
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`Defendant Highland failed to meet either requirement.
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`37.
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`On April 25, 2016, EPA sent Defendant Highland a letter formally disapproving
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`the Interim Plan and instructing Highland to work with HSD and Griffith to develop a holistic
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`approach that eliminates SSOs and achieves compliance with the CWA.
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`B.
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`Defendant Griffith
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`38.
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`Defendant Griffith owns and operates a sanitary sewer collection system, which
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`includes piping and a 4.6 million gallon equalization basin that conveys sewage from the Town
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`of Griffith, Indiana to the HSD’s wastewater collection system and wastewater treatment plant
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`for treatment.
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`7
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`39.
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`Defendant Griffith’s sanitary sewer collection system is a “point source” as that
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`term is defined in 33 U.S.C. § 1362(14); 327 IAC 5-1.5-40.
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`40.
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`Defendant Griffith does not have a NPDES Permit and is, therefore, prohibited
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`from “dischar[ging] any pollutants” under 33 U.S.C. § 1311(a) and Ind. Code 13-30-2.
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`41.
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`On June 19, 1997, this District Court entered a Consent Decree between the
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`United States, the State of Indiana, and the Town of Griffith, 2:93-cv-225 (J. Moody), designed
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`to ensure Defendant Griffith’s compliance with the CWA.
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`42.
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`Among other things, the Consent Decree required the Town of Griffith to
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`construct a new pump station and equalization basin capable of temporarily storing Griffith’s
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`untreated wastewater and to develop a sewer system evaluation study to reduce inflow and
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`infiltration of water into Griffith’s sanitary sewer collection system.
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`43.
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`Despite these improvements, Defendant Griffith still experiences SSOs during
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`certain wet weather events. When its sanitary sewer collection system gets overloaded,
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`Defendant Griffith pumps untreated wastewater from its equalization basin to a wetland abutting
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`the Little Calumet River. Each discharge of untreated wastewater to the wetland is a SSO.
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`44.
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`The adjacent wetland is a “navigable water.” 33 U.S.C. § 1362(7); 40 C.F.R.
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`§122.2(1); Ind. Code 13-11-2-265.
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`45.
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`On February 10, 2012, under the authority of 33 U.S.C. §§ 1318(a) and 1319(a),
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`EPA issued an Administrative Order (“2012 Order”) to Defendant Griffith to address recurring
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`SSOs from its sewer collection system.
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`46.
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`In the 2012 Order, among other things, EPA required Defendant Griffith to cease
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`all SSOs and submit an alternatives analysis of infrastructure improvements to eliminate all
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`SSOs.
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`47.
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`In August 2012, Defendant Griffith submitted its alternatives analysis and
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`recommended a plan to expand its equalization basin by 10 million gallons.
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`48.
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`EPA responded by requesting a revised alternatives analysis because it was not
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`convinced that Defendant Griffith’s recommended plan would eliminate SSOs.
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`49.
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`Defendant Griffith submitted a revised alternatives analysis in April 2013, which
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`included the equalization basin expansion and increases to the amount of sanitary sewage
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`Griffith would send to HSD. Later that year, Defendant Griffith informed EPA that the revised
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`recommended plan was no longer viable because Defendant Griffith and HSD could not reach an
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`agreement on increasing flow from Griffith to HSD.
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`50.
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`As a result, EPA sent a Notice of Violation letter to Defendant Griffith on
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`October 26, 2015 formally notifying Griffith that it was not in compliance with EPA’s 2012
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`Order.
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`51.
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`On April 26, 2016, EPA sent Defendant Griffith a letter formally disapproving the
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`alternatives analysis and instructing Griffith to work with HSD and Highland to develop a
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`holistic approach that eliminates SSOs and achieves compliance with the CWA.
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`FIRST CLAIM FOR RELIEF
` (Illegal Discharges of Untreated Wastewater by Defendant Highland)
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`Paragraphs 1 through 51 are re-alleged and incorporated herein by reference.
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`52.
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`53. On at least 258 days since July 2012, Defendant Highland illegally discharged
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`untreated sewage, which is a “pollutant” under 33 U.S.C. § 1362(2); and 327 IAC 5-1.5-41, from
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`a point source to the Little Calumet River or the Cady Marsh Ditch without a permit.
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`54. The Little Calumet River and the Cady Marsh Ditch are “navigable water[s].” 33
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`U.S.C. § 1362(7); 40 C.F.R. §122.2; Ind. Code 13-11-2-265.
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`55. Each discharge constitutes a separate violation of the CWA. 33 U.S.C. § 1311(a).
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`56.
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`Each such discharge constitutes a separate violation of Ind. Code § 13-30-2-1 and
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`327 IAC 5-2-2.
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`57.
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`Unless enjoined by the Court, Defendant Highland will continue to violate 33
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`U.S.C. § 1311, and Ind. Code § 13-30-2-1 and 327 IAC 5-2-2.
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`58. For each violation referred to in this claim, pursuant to 33 U.S.C. § 1319(b) and
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`(d), Ind. Code § 13-30-4-1 and Ind. Code § 13-14-2-6, Defendant Highland is subject to
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`injunctive relief, as well as civil penalties in the amounts as set forth in Paragraphs 23-24 of this
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`Complaint.
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`SECOND CLAIM FOR RELIEF
`(Violations of 2011 Order by Defendant Highland)
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`Paragraphs 1 through 51 are re-alleged and incorporated herein by reference.
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`59.
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`60. Defendant Highland violated the 2011 Order issued by the Administrator under
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`the authority of 33 U.S.C. §§ 1318(a) and 1319(a) by: failing to implement the schedule for the
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`Interim Plan that was made part of the 2011 Order; failing to submit a feasible alternative to the
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`Interim Plan; and failing to eliminate all SSOs.
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`61.
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`Unless enjoined by the Court, Defendant Highland will continue to violate the
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`2011 Order.
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`62. For these violations, pursuant to 33 U.S.C. § 1319(b) and (d), and Ind. Code § 13-
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`30-4-1 and Ind. Code § 13-14-2-6, Defendant Highland is subject to injunctive relief, as well as
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`civil penalties in the amounts as set forth in Paragraphs 23-24 of this Complaint.
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`USDC IN/ND case 2:22-cv-00086-PPS-APR document 1 filed 04/07/22 page 11 of 15
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`THIRD CLAIM FOR RELIEF
`(Illegal Discharges of Untreated Wastewater by Defendant Griffith)
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`Paragraphs 1 through 51 are re-alleged and incorporated herein by reference.
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` On at least 16 days since April 2013, Defendant Griffith illegally discharged
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`63.
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`64.
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`untreated sewage, which is a “pollutant” under 33 U.S.C. § 1362(2) and 327 IAC 5-1.5-41, from
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`a point source to a wetland adjacent to the Little Calumet River without a permit.
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`65. The adjacent wetland is a “navigable water.” 33 U.S.C. § 1362(7); 40 C.F.R.
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`§122.2(1); Ind. Code 13-11-2-265.
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`66. Each discharge constitutes a separate violation of 33 U.S.C. § 1311(a).
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`67. Each such discharge constitutes a separate violation of Ind. Code § 13-30-2-1 and
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`327 IAC 5-2-2.
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`68. Unless enjoined by the Court, Defendant Griffith will continue to violate 33
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`U.S.C. § 1311, and Ind. Code § 13-30-2-1 and 327 IAC 5-2-2.
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`69. For each violation referred to in this claim, pursuant to 33 U.S.C. § 1319(b) and
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`(d), Defendant Griffith is subject to injunctive relief, as well as civil penalties in the amounts as
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`set forth in Paragraphs 23-24 of this Complaint.
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`FOURTH CLAIM FOR RELIEF
`(Violations of 2012 Order by Defendant Griffith)
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`Paragraphs 1 through 51 are re-alleged and incorporated herein by reference.
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`70.
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`71. Defendant Griffith violated the 2012 Order issued by the Administrator under the
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`authority of 33 U.S.C. §§ 1318(a) and 1319(a), by: failing to submit an alternatives analysis with
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`a feasible, recommended alternative and schedule for completion; and failing to eliminate all
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`SSOs.
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`USDC IN/ND case 2:22-cv-00086-PPS-APR document 1 filed 04/07/22 page 12 of 15
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`72.
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`Unless enjoined by the Court, Defendant Griffith will continue to violate the 2012
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`Order.
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`73. For each violation referred to in this claim, pursuant to 33 U.S.C. § 1319(b) and
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`(d), Defendant Griffith is subject to injunctive relief, as well as civil penalties in the amounts as
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`set forth in Paragraphs 23-24 of this Complaint.
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`PRAYER FOR RELIEF
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`WHEREFORE, Plaintiffs, the United States and the State, respectfully pray that this
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`Court provide the following relief:
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`1.
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`A permanent injunction directing Defendant Highland to take all steps necessary
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`to eliminate all SSOs;
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`2.
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`A permanent injunction directing Defendant Griffith to take all steps necessary to
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`eliminate all SSOs;
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`3.
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`A judgment assessing civil penalties against Defendants Highland and Griffith in
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`favor of the United States, not to exceed $37,500 per day for each separate violation of the CWA
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`which occurred between January 12, 2009 and November 2, 2015 or $59,973 per day for each
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`separate violation of the CWA which occurred after November 2, 2015;
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`4.
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`A judgment assessing civil penalties against Defendants Highland and Griffith in
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`favor of the State, not to exceed $25,000 per day for each separate violation of Ind. Code 13-18-
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`4-5 that occurred;
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`5.
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`Award the United States and the State their respective costs and disbursements in
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`this action; and
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`USDC IN/ND case 2:22-cv-00086-PPS-APR document 1 filed 04/07/22 page 13 of 15
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`Grant such other relief as this Court deems appropriate.
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`6.
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`Respectfully submitted,
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`FOR THE UNITED STATES OF
`AMERICA
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`TODD KIM
`Assistant Attorney General
`Environment and Natural Resources
`Division
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`____________________________
`ALISON C. McGREGOR
`Trial Attorney
`U.S. Department of Justice
`Environmental Enforcement Section
`P.O. Box 7611
`Washington, DC 20044
`(202) 514-1491
`alison.mcgregor@usdoj.gov
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`13
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`/s/ Alison C. McGregor
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`USDC IN/ND case 2:22-cv-00086-PPS-APR document 1 filed 04/07/22 page 14 of 15
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`CLIFFORD D. JOHNSON
`United States Attorney
`Northern District of Indiana
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`SHARON JEFFERSON
`Assistant United States Attorney
`Northern District of Indiana
`5400 Federal Plaza, Ste. 1500
`Hammond, IN 46320
`(219) 937-5681
`sharon.jefferson2@usdoj.gov
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`OF COUNSEL:
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`SUSHILA NANDA
`Attorney Advisor
`U.S. EPA Headquarters
`Ariel Rios Building (2243A)
`1200 Pennsylvania Ave., NW
`Washington, DC 20460
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`ANDRE DAUGAVIETIS
`Associate Regional Counsel
`U.S. Environmental Protection Agency, Region 5
`Office of Regional Counsel
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`ROBERT GUENTHER
`Associate Regional Counsel
`U.S. Environmental Protection Agency, Region 5
`Office of Regional Counsel
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`14
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`USDC IN/ND case 2:22-cv-00086-PPS-APR document 1 filed 04/07/22 page 15 of 15
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`FOR THE STATE OF INDIANA
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`A ATTORNEY GENERAL
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`Chief Counsel for Litigation
`Office of Indiana Attorney General
`Todd Rokita
`402 West Washington Street
`IGCS, 5 th Floor
`Indianapolis, IN 46204
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`OF COUNSEL
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`ELIZABETH ADMIRE
`Attorney
`Indiana Department of Environmental Management
`100 North Senate Street
`P.O. Box 6015
`Indianapolis, IN 46206
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`15
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