By A. Stanley Meiburg
I remember meeting Leon Billings only once—at National Airport in 1984. I was traveling as staff to then-Deputy Administrator Al Alm, when he walked over to a distinguished-looking gentleman and began an animated conversation. I don’t remember the subject of their conversation, but Al told me later who he was and described the tremendous influence Mr. Billings had on the Clean Air Act, the Clean Water Act, and other environmental statutes.
Recently, Mr. Billings passed away at age 78. Throughout his life, his trailblazing status was never lost on him.
“We certainly were entrepreneurs,” he said. “And maybe to a degree revolutionaries — because, to use a cliché, we went someplace that Congress has never gone before.”
As Mr. Billings explained in an article a couple of years ago, Congress had debated various versions of legislation on pollution control beginning in the late 1940’s, but provided very limited authority to the federal government. But Mr. Billings supported the intention of the late Senator Edmund Muskie and others to “create a legally defensible structure to assure that public health-based air quality would be achieved as swiftly as possible.” That, as Mr. Billings explained it, would require federal action. Soon, the 1970 Clean Air Act would make history by establishing the protection of public health as the primary basis for America’s air pollution control efforts.
Three examples of this, from the 1970 Clean Air Act, were the creation of national health-based air quality standards, requirements for national performance standards for new stationary sources, and provisions for technology-forcing emissions reductions from motor vehicles. In the course of these accomplishments, Mr. Billings acquired a reputation as “the man who brokered the behind-the-scenes deal making that enabled Muskie to push through his signature achievement.”
The effectiveness of Mr. Billings as staff director for Senator Muskie and advisor to many other members of Congress is well documented in the historical record, and left an enduring legacy in the nation’s principal environmental laws. Even after leaving the Senate staff, Mr. Billings continued to comment on proposals he thought would weaken the health-based focus of the act. For example, during the debate over the 1990 Clean Air Act Amendments, there was a proposal to set a cost-effectiveness threshold of $5,000 per ton of pollution reduced as a ceiling on what EPA could require. In criticizing the proposal, Mr. Billings said he thought this meant that we were now placing a price on health—clean air, at a cost of $2.50 a pound. The proposal was not enacted.
Some 40 plus years later, we owe a great debt to Mr. Billings and other 1970’s pioneers who crafted the core environmental statutes that continue to guide our work. Their willingness to move forward with new approaches was a remarkable gift. Measured by their results in cleaning up our air and water, our laws have stood the test of time and controversy amazingly well.
Pioneers like Mr. Billings could not have anticipated all the challenges that have emerged since the early 1970’s. The enduring usefulness of our environmental laws only adds to the luster of the legacy he left to us. Mr. Billings’ life work is being honorably carried on by his family—such as his son Paul, who has worked with the American Lung Association for many years to support clean air protections that prevent asthma, lung cancer, chronic obstructive pulmonary disease, and other consequences of air pollution. All of us at EPA extend our thoughts—and our gratitude—to Mr. Billings’ family and his many friends.