Vague plan writing is normal means

Goals. In theory, the first step in pollution abatement begins with a determination by Congress of the ultimate objectives to be accomplished through pollution regulation. In practice, these goals are often broadly and vaguely worded. Sometimes, as when Congress decides to press technology by setting pollution standards that it hopes will force industry to develop control technologies not currently available, the goals are deliberately made extremely ambitious as an incentive for vigorous regulatory measures by regulated interests. The principal goals of the CAA are, for example, to protect public health and safety. Vague goals are not as important in defining the operational character of a regulatory program as are the more detailed specifications for the setting of pollution standards, emission controls, and enforcement-the real cutting edges of regulation. Statements of goals, however, may be politically sig nificant as signals to the interests involved in regulation about which pollutants and sources will be given priority and how vigorously Congress intends to implement programs. The CAA goal of establishing national air-quality standards for major pollutants, for instance, was an unmistakable signal that Congress would no longer tolerate the continual delays in controlling air pollution caused by past legislative willingness to let the states create their own air-quality standards. It was also evidence that regulated interests had lost their once-dominant position in the formation of air pollution policy.